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Reform or Withdrawal 18 Seymour Maxwell Finger
Rather than withdraw from UNESCO, the United States should use its influence to attain reforms.
U.N. Economic and Social Operations 24 An Interview with Kathleen Bell A Lebanese Army soldier in a U.S. -made armored personnel carrier gazes over a capital divided by A U.N. specialist for 30 years recalls how international¬ factional strife. Newsday diplomatic and military reporter Roy Gutman s story on the policy divisions ist ideals clashed with bureaucratic realities. in Washington begins on page 28. Photo by Chip Beck. Battle over Lebanon 28 Roy Gutman The United States failed in Lebanon because impulse and rhetoric dominated policymaking in Washington.
Journal: McDougal in Jail 34 Fred Godsey His connection with the religious inebriate brought the vice consul an unwelcome notoriety.
Association Views 3 Clippings 16 Letters 4 10-25-50 17
Editor: STEPHEN R. DUJACK Books 8 People 39 Associate Editor: FRANCES G. BURWELL Diplomacy 12 Association News 42 Editorial Assistant: NANCY L. BARTELS
Editorial Board
Chairman: JOHN D. STEMPEL Vice Chairman: W. HAVEN NORTH Members: FRANCIS X. CUNNINGHAM “The Independent Voice of the Foreign Service” GILBERT DONAHUE FOREIGN SERVICE JOURNAL and at additional post office. POSTMASTER: Send ad¬ GEORGE GEDDA The is the magazine for professionals in foreign affairs, published monthly dress changes to FOREIGN SERVICE JOURNAL, 2101 E CAROLINE MEIRS OSTERLING except August by the American Foreign Service As¬ Street NW, Washington. D.C. 20037. TAIRA ST. JOHN sociation, a private non-profit organization. Material Microfilm copies: University Microfilm Library LANGE SCHERMERHORN appearing herein represents the opinions of the writ¬ Services, Ann Arbor, Michigan 48106 (October ers and does not necessarily represent the official 1967 to present). Advertising Representatives views of the foreign affairs agencies, the U.S. govern¬ The JOURNAL welcomes manuscripts of 1500- ment, or AFSA. The Editorial Board is responsible 4000 words for consideration by the Editorial Board. JAMES C. SASMOR ASSOCIATES for general content, but statements concerning the Author queries are strongly urged, stamped envelope 521 Fifth Ave., Suite 1700 policy and administration of AFSA as employee rep¬ required for return. All authors are paid on publica¬ New York, N.Y. 10017. resentative under the Foreign Service Act of 1980 in tion. (212) 683-3421 the ASSOCIATION NEWS and the ASSOCIATION VIEWS, and all communications relating to these, are the © American Foreign Service Association, 1984. JOSHUA B. POWERS, LTD. responsibility of the AFSA Governing Board. 2101 E Street NW, Washington, D.C. 20037. 46 Keyes House, Dolphin Square, JOURNAL subscriptions: One year (11 issues), $ 10; Phone (202) 338-4045. London SW1. 01-834-8023/9. two years, $18. Overseas subscriptions (except Can¬ ada), add $1 per year. June 1984. Volume 61, number 6. ISSN 0015- International Representatives Second-class postage paid at Washington, D.C., 7279. ASSOCIATION VIEWS
American Foreign A Situation We Will Not Tolerate Service Association
Governing Board
President: DENNIS K. HAYS Q Vice President: ANTHEA S. DE ROUVILLE lightly over a year ago I went to Andrews Air Force Second Vice President: DOUGLAS P. BROOME Base to pay my heartfelt respects to your fallen comrades, Secretary: IRVING A. WILLIAMSON Treasurer: JOANN JENKINS victims of the terrorist bombing of the American embassy AID Representatives: RIGHARD DELANEY JUANITA L. NOFFLET in Beirut. As I talked with each family, I was touched by State Representatives: JAMES A. DERRICK their grief, from the youngest child to the oldest grandpar¬ THOMAS J. MILLER JAMES SPAIN ent. It was, as I said on that occasion, “the longest journey JAMES WILLIAMSON US IA Representative: JAROSLAV VERNER of my presidency.” Retired Representatives: SPENCER KING That sad event brought home to me the great irony of ROGER PROVENCHER JOHN THOMAS your profession: as diplomats you abhor violence and pur¬ sue peace, and yet you often are the targets of terrorism and Staff Executive Director: LYNNE IGLITZIN uncontrolled hate. General Counsel: SUSAN Z. HOLIK Members' Interest This past year we have witnessed a continuation of acts & Grievance Counselor: SABINE SISK of terrorism against the representatives of our country and Comptroller: JOHN TIERNEY Membership Coordinator: LEE MIDTHUN especially against members of the Foreign Service commu¬ Accountant: WANDA DYKHUIS Legal Assistant: GREGORY A. LEWIS nity. More than ever before, the satisfaction and the joys of Executive Secretary: CATHY SEWARD serving your country abroad are burdened by the ever¬ Secretary: SUPAJEE LAPCHAROEN present danger of irrational violence. Congressional Liaison ROBERT M. BEERS This is a situation we cannot and will not tolerate. Let Scholarship Programs me assure you that we will make every effort to defend our DAWN CUTHELL diplomats by strengthening security measures and enhanc¬ Face-to-Face Program ing our intelligence capabilities and, if necessary, by more KENNETH J. DILLON The American Foreign Service Association, founded in active defensive measures. Terrorism must not be allowed 1924, is the professional association of the Foreign Service and the official employee representative of all to succeed. If it does, the victims will be not only diplo¬ Foreign Service employees in the Department of State and the Agency for International Development under mats or Americans, but the cause of freedom itself. the terms of the Foreign Service Act of 1980. Active membership in AFSA is open to all current or retired As you gather on the occasion of your 19th Foreign professionals in foreign affairs overseas or in the United States. Associate membership is open to persons hav¬ Service Day, I am very proud to express to you our nation’s ing an active interest in or close association with for¬ eign affairs who are not employees or retirees of the deepest appreciation for your sacrifice and service to our foreign affairs agencies. Annual dues: Active Mem¬ country. bers—$52-117; Retired Active Members—$40 for members with incomes over $20,000, $25 for under; All Americans who love this country and who take pride Associate Members—$25. All dues include $7.50 al¬ location for JOURNAL and ASSOCIATION NF.WS sub¬ in our history are honored by the work of the American scription under AFSA Bylaws. All AFSA members are members of the Foreign Service Club, owned and op¬ Foreign Service and especially by your selfless dedication erated by AFSA. to the cause of peace throughout the world. AMERICAN FOREIGN SERVICE ASSOCIATION 2101 E Street NW, Washington. D.C. 20037 —PRESIDENT REAGAN Membership inquiries, comptroller, scholarship programs, insurance programs, JOURNAL offices: (202) 338-4045 Governing Board, general counsel, The above message was delivered by Secretary Shultz on For¬ labor-management relations: (202) 632-8160 eign Service Day. members' interests, grievances: (202) 632-2548 Foreign Service Club: (202) 338-5730 ter control and influence-wielding, and (3) the seeming immunity, which Mr. Wil¬ AUTHORIZED EXPORTER helm notes, elected public officials have ELECTRIC against anti—foreign assistance sentiment. GENERAL The commission seems more concerned -U.S.A.- LETTERS with the manner than the goals and objec¬ tives. Another serious problem with the com¬ mission’s work is its failure to address the GENERAL ELECTRONICS Economic Support Fund vs. Development INC. Commission of error Assistance question, especially as it relates to the less-developed countries’ debt, al¬ John Wilhelm's revelations about the Car- though we do get some insight from the REFRIGERATORS • FREEZERS lucci commission [November] are very recommendation that both accounts be RANGES • MICROWAVE OVENS disturbing. If true, they paint a picture of more flexible. Whether ESF is lumped in AIR CONDITIONERS • DRYERS a commission that has done little more with DA is not the real issue. Rather, it is WASHERS • SMALL APPLIANCES than summarize and justify the foreign as¬ the fact that, using Mr. Wilhelm’s data, AUDIO EQUIPMENT • TELEVISION sistance policy stance espoused by foreign ESF has increased from 7 to 44 percent of DISHWASHERS • TRANSFORMERS assistance’s “iron triangle’’—the foreign total economic aid from 1968 to 1983. assistance bureaucracy, the Pentagon, and Besides “peace-keeping” objectives I sus¬ Available for All Electric the present administration, whose natural pect a growing chunk of this increase, Currents/Cycles preference is for tight control, i.e., the along with PL 480 Title I, is going to debt “carrot” approach. The list of 15 public relief, whether through commodity im¬ Immediate Shipping/Mailing commissioners and Georgetown's Center port programs or cash grants. Since trade From our Local Warehouse for Strategic and International Studies issues are intimately linked with debt reads less like a "wide-spectrum of non¬ problems and are a principal consideration We Can Also Furnish government help” than a coalition of big of any mutuality aspects of foreign assis¬ Replacement Parts for business-labor protectionists and conserva¬ tance, the commission is committing, by Most Manufactures tives. Therefore, it’s not surprising that its own standards, a grave oversight in ig¬ the "new” name and concept for our next noring trade issues, and in dismissing debt foreign assistance agency is adopted from issues for the reasons Mr. Wilhelm pro¬ SHOWROOM the 1950s cold war era, when “stick and vides. General Electronics, Inc. carrot” were the rule. The most serious flaw in Mr. Wilhelm’s 4513 Wisconsin Avenue, N.W. It is also not surprising that the com¬ reasoning comes at the crux of any serious Washington, D.C. 20016 mission had readily “found that foreign assessment/reevaluation of foreign assis¬ Tel. (202) 362-8300 assistance is necessary for the proper con¬ TWX 710-822-9450 tance. If the commission’s attitude toward duct of U.S. foreign affairs,” so that “its task evaluation, as expressed by its executive GENELECINC WSH now is to articulate the goals and objec¬ director, is that “success or failure is very tives in a manner that will allow an ex¬ much like beauty—it is in the eye of the panded bipartisan coalition to develop." beholder,” I find it will be difficult to take Mr. Wilhelm, defending what he later any of its conclusions or recommendations
CO p dubbs as the “elite” point of view, implies seriously. Their credibility is further taint¬ <5 £ that the public is misinformed and/or ig¬ ed by Mr. Wilhelm’s contradictions. On §§ norant of the “need” for foreign assistance the one hand, he admits project evaluation o ® by claiming they elect foreign assistance is possible and there have been successes at ® *' supporters despite polls showing public the project level and among target benefi¬
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JUNE 1984 5 governments as Anastasio Somoza’s may various objectives and the programs’ de¬ SHOP IN AN AMERICAN actually promote poverty and economic grees of effectiveness in meeting them. DRUG STORE BY MAIL! decline. That is inescapably subjective and will en¬ Finally, should overall economic tail honest differences of opinion. Effec¬ An ice cream soda is one of the growth and efficiency be a primary objec¬ tiveness, then, has the quality of beauty few items we cannot mail. Drugs, tive when U.S. assistance accounts for such and must in the final analysis rest in the cosmetics, sundries a small part of economic assistance to the eye of the beholder. mailed to every coun¬ Third World? Why is there no mention of Mr. Walworth has one sound point. try in the world. We coordinating assistance? The commission overlooked the trade issue maintain permanent Maybe Dr. Kissinger can be persuaded completely and that is a shortcoming. The family prescription to “save” this commission. reason was straightforward: The charter records. SEND NO did not request it and time did not allow MONEY — pay only after satis¬ STEVE WALWORTH it. The trade issue is very important. It AID Foreign Service Officer, retired should be addressed. Mr. Walworth’s ri¬ factory receipt of order. Los Angeles, California diculous accusations against the commis¬ sion’s members should not. Author John Wilhelm replies: The article in the November JOURNAL Bargaining Chips reported on the findings of the Carlucci commission. My views are aired else¬ I would like to vent some spleen over the where. Moreover, the term “elite,” which JOURNAL’S publication of Jane Sharp’s Mr. Walworth uses with disdain, is the “Bargaining Chips” [March]. term used by the Chicago Council on For¬ I have nothing against the occasional eign Relations. Their 1978 and 1982 polls controversial article appearing in the JOUR¬ distinguished between the casual observer NAL and also enjoy seeing a little life in the offoreign affairs and the informed one. The magazine. Her article is thoroughly con¬ casual observer is by definition more igno¬ troversial, since it could have been written rant. That ignorance is not culpable, and, by the USA Institute in Moscow, where I t/a Morgan Pharmacy therefore, calling it what it is should not heard all her arguments time and again. I 3001 P Street, N.W. be regarded as pejorative. have at one time or another been involved Washington, D.C. 20007 The commission noted, however, that with several of her themes, chemical weap¬ the constituencies for foreign cooperation ons and INF, for example, and do not see (assistance) have become over time more much point in refuting her preposterous fragmented and single-issue oriented, i.e., statements. That ferocious militarist Hel¬ only humanitarian, only security, only trade mut Schmidt appears to have missed the The school and commerce, etc. These positions are boat in late 1979, for example. Or, Brezh¬ that comes to inconsistent with the very nature of the aid nev made a unilateral gesture withdrawing transaction, which of necessity is political 1000 Soviet tanks and 20,000 Soviet your child. (it involves governments), economic (it in¬ troops from East Germany. Would that volves money), security (it presumably Ms. Sharp talk with one of the journalists Complete home-study course for strengthens the recipient), and humanitar¬ called to East Berlin to occasion that his¬ elementary-level students. Kin¬ ian (it again presumably helps the needy). torical event. But we withdrew 1000 “ob¬ dergarten through 8th grade. An Very simply, if foreign assistance is to con¬ solete” American warheads. Etc. She tinue for whatever reason, enhanced public writes pure Moscow-line, and the JOURNAL American education anywhere in awareness, cooperation among constituen¬ should have known better. the world. Ideal for enrichment. cies, and support are essential. While I admit to wondering just what Home is the classroom, you are Mr. Walworth complains about a for¬ the Peace Studies Program at Cornell is the teacher with Calvert’s ap¬ eign cooperation program which is based engaged in, I also want to add that I am proved instruction guide. Start upon principles of mutual benefit. If it is always stimulated when some thoughtful anytime, transfer to other schools. not to be mutually beneficial, whom advocate of arms control and opponent of should it benefit? Mutuality of benefit is U.S. and NATO policies takes to print. Used by over 300,000 students. the only sound basis upon which political Warnke, for example, or, further afield, Non-profit. Write for catalog. equals can meet over time with dignity. Gerd Bastian in Germany. They, and The accusation that mutuality of interest is many others, think for themselves. the equivalent of "neo—cold war” policies More seriously, you might want to ask CALVERT A SCHOOL is far-fetched at best. ACDA, RPM, or PM to do a risposte or Established 1897 301-243-6030 Mr. Walworth is indignant about the ask someone in academe to contribute one. Box F6-4, Tuscany Rd., Baltimore, MD 21210 commission’s view that evaluations of our I would not like to see the last word in the
Parent's Name foreign cooperation programs are not ade¬ JOURNAL going to someone who starts with quate. The commission points out in its Bernard Baruch and ends with Caspar Address report that while we do perform technical Weinberger in criticizing just about ev¬ Cily Stale Zip evaluations, they deal only with one out¬ erything that the U.S. has done in main¬ Child s Age Grade put of the program and ignore the remain¬ taining its security since the war save of Admits students of any race, color, national or ethnic origin- der. In a comprehensive evaluation, values course those two examples of unilateral would have to be assigned to all of the measures: Kennedy’s Limited Test Ban
6 FOREIGN SERVICE JOURNAL Treaty and Nixon’s Biological Weapons Convention. PETER SEMLER Foreign Service Officer Rome, Italy
Author Jane M.O. Sharp responds: What do Peter Sender's ad hominem attack speaks volumes about the state of his spleen, but, sadly, contributes nothing to the much-needed debate on U.S. arms JFK control policy. In his fury, he ascribes to Ike. me statements I did not make and views I do not hold, yet seems to have missed the point of my article. This was not, as he implies, to denounce American security policy since 1945, but to ask whether the & Nixon acquisition of "bargaining chips,” or the exercise of restraint, constitutes the more effective arms control strategy for the United States to follow in its dealings with the Soviet Union. have in Specifically, I examined claims that procurring new military programs brings recalcitrant adversaries to the negotiating table, softens their bargaining position, common? and can be cashed in for specific Soviet concessions in arms control agreements. My article reviewed several major arms control forums in the post war period, and They were moved by suggested the opposite is true. The record shows that bargaining chips usually de¬ layed the start of serious dialogue and toughened, rather than softened, the ad¬ FIDELITY STORAGE versary's negotiating position. Moreover, constituencies developed to retain, rather outside of the Beltway, with than cash in, specific "chips," provoking From presidents to super-secure vault storage for countermeasures rather than concessions plenipotentiaries, from the other side. Washingtonians choose Fidelity your silver and other valuables. By contrast, U.S. restraints, whether Storage, the company with We are the only State directed by the White House or imposed more than 75 years of Department contractor with by the Congress, have often revived stalled experience. Fidelity is one of both a quality control program negotiations, facilitated arms control the area’s largest moving and and fulltime inspector to agreements, and enhanced western securi¬ storage companies, with six ensure the highest standards. ty- locations throughout the metro Peter Semler offers no substantial rebut¬ area—from the District to We have moved Patton, tal of these findings. If, however, he be¬ Virginia to Maryland. MacArthur and Doolittle. lieves that bargaining chips contribute to From generals to general U.S. and allied security and improve the Fidelity’s warehouses are the chances of agreements limiting Soviet largest and most advanced service officers, join a moving forces, let him present his evidence and containerized facilities inside or crowd. argue his case in a civilized manner. Correction The man pictured with Environmental Protection Agency Administrator Wil¬ liam Ruckelshaus on page 24 in the May JOURNAL was John Roberts, not Charles Caccia. Roberts was Caccia’s immediate predecessor as Canada's minister for the environment.
The JOURNAL welcomes letters to the editor hut Inbound or Outbound, Storage or Air Freight, call Fidelity Storage reserves the right to edit for clarity and shorten (703) 971-5300 • PO Box 10257, Alexandria, Va. 22310 for space considerations.
JUNE 1984 The Superpowers and Regional Ten¬ sion of Soviet dilemmas. And, if Griffith sions: The U.S.S.R.. The UnitedStates, and doubted then that the Polish army would Europe. By William E. Griffith. Lexington be the vehicle for partially restoring the Books, 1982. situation he was not alone in that judg¬ ment. Griffith’s book examines U.S.-Soviet rela¬ The most useful chapters are those deal¬ BOOKS tions in Europe over the last two decades. ing with dissidence in Eastern Europe and Two long chapters trace the interplay be¬ Eurocommunism. Griffith wisely empha¬ tween the superpowers in security policy sizes the deep roots of Eastern European and arms control with an abundance of nationalist resistance to Soviet control and detail that makes them still useful, though Russian nationalist determination to pro¬ now three years old and sometimes hard tect its power. He also sees clearly the America, Europe, and the Soviet going for the non-specialist. A similarly challenge Eurocommunism offered to the Union. By Walter Laqueur. Transaction detailed account of the Polish situation up Soviet model of leadership among Com¬ Books, 1983. to mid-1981 includes a perceptive discus¬ munist parties and the domestic legitima¬ cy of the Soviet party. Although Eurocom¬ munism has since faded, Griffith sensibly judges earlier U.S. concerns to have been exaggerated, but not baseless. “The Crisis of the Western Alliance” is IT’S YOUR MOVE... the least satisfying chapter because it ad¬ dresses the issues of 1980-81—Afghani¬ Again. Sure enough you are going to be on the way to a distant stan, the Mideast, intermediate-range post. To make your move as simple and painless as possible, missiles, European defense spending, District Moving and Storage has prepared its New Assignment East-West trade, stagflation—as if they Abroad checklist for people on their way to foreign service. added up not only to a crisis among the From planning your move to settling what to put in storage, allies (the normal state of affairs) but to the District’s checklist will not only let you know what needs to be most serious crisis ever. In 1984 the alli¬ done and how, but will prioritize the way you do it. It was prepared ance is still in crisis, but it is also still in by an advisory committee made up of foreign service personel business, even though Griffith's proposed and our senior staff. remedies have not been applied. His rec¬ The New Assignment Abroad checklist is yours for the asking. ommendations for avoiding or overcoming In Washington, call 420-3300 or write District and we will send it to such crises—improved policy coordination you promptly. You can leave home without it but we believe you among the major western allies and Japan will make your move happier with it. and closer Western European unity—are familiar and apparently irrelevant to the We will show you what it is like to be an ambassador. adequate if continually troubled function¬ ing of the alliance. Walter Laqueur’s book is a collection of articles published (with one exception) be¬ tween 1979 and 1983, mainly in Commen¬ TWCT tary. Most date from the late Carter years MOVING fes STORAGE, INC. 3850 Penn Belt Place and reflect the somber mood that Laqueur Forestville, Maryland 20747 shared with many others at that time. But 301 • 420 • 3300' the Reagan administration does not please him much either. He finds that Carter’s “weakness and inconsistency” have been replaced by “tough rhetoric and inconsis¬ tency." Reagan lacks a broad strategy and gives too much attention to domestic is¬ sues. “Meanwhile,” Laqueur wrote in 1982, "time runs out.” Laqueur is at his best in analyzing the Soviet system and its policies (though he exaggerates the effectiveness of Soviet pen¬ etration of the Third World). But when it comes to policy prescriptions he shows a considerable amount of utopianism. Thus, he calls for a foreign policy consensus in / /K. District 's Foreign Sen •ice the United States and between it and its Advisory Committee. Andrew / Kilgore. Hetty Co.xson Dols. allies; a global strategy supported by such John A Collins. Former a consensus; a sufficiently united Western Ambassador Kilgore and Mr. Europe to support—psychologically and Collins are retired from the Foreign Service. Mrs Dots is a materially—the costs and burdens of such Foreign Service wife. a strategy; and a sufficiently united West-
8 FOREIGN SERVICE JOURNAL ern alliance to deter or defeat every Soviet perspective on both the hostages and their tors. Akbar was a former engineering stu¬ challenge, in and out of Europe. captors. His assessment of the situation in dent who was turned into a militant fol¬ Laqueur does not give much attention Iran is aided by experience gained from his lower of Khomeini by his arrest and to specifics (except for uiging enhanced eat Her tour of duty there and by his knowl¬ torture at the hands of the Shah's secret information programs and, cf course, rear¬ edge of the language and culture. police. Although Akbar, as the author ad¬ mament) and even less to considering why Scott was the second-ranking military mits, would have executed any of the hos¬ the things he calls for have never been officer in the embassy and in charge of the tages if ordered to do so, he won Scott’s achieved to a degree he would think ade¬ U.S. Defense Liaison office. The militants gratitude for his humane treatment of the quate. In essay after essay he is content to who seized the compound suspected him captives and his efforts to alleviate their denounce the failure of the Western pub¬ of being in the employ of the Central Intel¬ hardships. In relating Akbar’s story, Scott lic, media, academics, and leaders to un¬ ligence Agency. As such, he was singled explains the reason for the fanaticism of the derstand the Soviet threat and do what he out for particularly harsh treatment. captors and their hatred for the United considers necessary. Unlike other former hostages turned au¬ States, whom they regarded as the princi¬ Laqueur is particularly bitter about thor, Scott intersperses between sections of pal prop for the Shah's regime. Western Europe, which he finds to be his own story an account of one of his cap¬ Unfortunately, because Scott uses a weak, divided, dependent, pretentious, and foolish all at the s?.'e time. In one essay he sensibly critici another writer for being emotional abc he destructive effects of nationalism ' . h, he says, is UTILITY STOCKS "about as effective as to . micize against rain, storm, or hail." i r > ■. seems unable Check-A-Month Plan to forgive the European i t having disap¬ pointed his own hope , at they would Receive a Dividend Check overcome their ancienr nationalisms and achieve political unity to resist the Soviet Every Month! Union better. The Europeans are now prey Phone — Write — Visit not only to Finlandization, but to a new illness called “Hollanditis” in dishonor of For new research report a small country that he believes did not stand up to Hitler. Europe is shirking its responsibilities and is morally decadent, A.G. Edwards & Sons, Inc. yet has the presumption to lecture others. But the evidence of recent years in Greece, Spain, and the Federal Republic Members New York Stock Exchange suggests that the governments of Western THE INCOME SPECIALISTS Europe are not collapsing ato neutralism. Perhaps Laqueur think' hat simply be¬ 235 Branches Nationwide cause sizable groups h to which he objects, those cc disabled. r 1 But surely it is unre: o - pect every citizen of these do. .itries to Please send A.C. Edwards research report support sensible p : . ■ les. We on Selected Utility Stocks — Check-a-Month FSJ | realists will be : 1 1 . 'nments based on adequat; I ;onable Name and sensible thin;. - • ■ iportant Address i occasions. - re X .v PORTE ! City | State Zip Pieces of the Game; . L vamaof Bus. Phone Res. Ph Americans Held H . ttui ,>. A Charles I W. Scott. Peachtree P:. i'/sir: U-i, 1984. I I am a client of A.G. Edwards Yes □ No □ $14.95 I I | A.G. EDWARDS & SONS, INC. The capture of the U ;> enab i -y in Iran in Mrs. Ruth G. Adler, Vice Pres. November 1979 by nul ta.it followers of Certified Financial Planner the Ayatollah Khomeini still remains an impediment to any possible improvement I Spring Valley Center in relations between the two countries. 4801 Massachusetts Ave., N.W. Even more traumatic, at least in terms of I Washington, D.C. 20016 its effect on their personal lives and the I 202/364-1600 nation’s psyche, was the imprisonment suffered by the captives. To the growing list of narratives, Colonel Charles Scott has ANG125EDC SIPC added an account that provides a useful
JUNE 1984 9 stream-of-consciousness style to describe Most of the twelve chapters derive from his and Akbar’s experiences, some readers a 1982 University of Southern California— SfWVrtE] may suspect him of including fictionalized U.S. Army Russian Institute symposium material. Nevertheless, students of Iranian on the subject. Some are by familiar and affairs will find Scott’s detailed presenta¬ reliable performers such as J.C. Hurewitz tion of conditions in Iran useful, and gen¬ and Robert O. Freedman. Others are by 5 Su. MERCEDES eral readers will enjoy its lively style. less familiar authors, some from Europe —BENSON L. GRAYSON and the Mideast itself. Sib MERCEDES Udo Steinbach, of the Deutsches Orient FREE! NEW CAR CATALOG Institut of Hamburg, considers Islam and BUY DIRECT The comprehensive NAI Master Catalog contains 32 The Banana Wars. By Lester D. Langely. the points of convergence between it and pages, over 150 illustrations. DIPLOMATIC and FACTORY tax-free prices, equipment, options, colors, and all the de¬ University Press of Kentucky, 1983 ■ $26. communism, in a manner that is thought- tails on how to order your car at these special savings. provoking, but perhaps more out of fash¬ The Nemet Organization has been meeting the needs of Americans throughout the world since 1916 You will have For those of us who forget why U.S. forays ion than fresh. He analyzes what he sees as your car. waiting where you want it. STATESIDE OR IN EUROPE —when you want it, all serviced and ready to go at into the Caribbean—however well-inten¬ the shared totalitarianism of Islam and special factory prices Buy your new car from Nemet because we ll be tioned—produce such outcrys against communism and finds a dangerous paral¬ here when you get home. “Gringo” policies, historian Langely of the lelism in the utopian goals of the two University of Georgia has provided a re¬ “ideologies.” He foresees that well-inten¬ minder. This slim volume instructs us in tioned Muslims, disillusioned with Islam's Please send me a FREE copy of your FSJ-1281 32 page Master Catalog. the history of those interventionist years social performance, will turn to commu¬ I am interested in: Stateside Delivery European Delivery and has the additional merit of being en¬ nism, where they will find “all the tempo¬ AUDI MG RENAULT tertaining. ral blessings of Islam improved, refined, BMW MERCEDES TRIUMPH DATSUN PEUGEOT VOLKSWAGEN The book spans the period between and embellished by technology and free FIAT PORSCHE VOLVO JAGUAR 1898-1934 and chronologically surveys from all metaphysical difficulties.” This Name _ Rank _ U.S. “banana wars” in Cuba, Nicaragua, “intrusion of communism into Islam,” he _ Date of Birth _ Social Security No Mexico, Haiti, the Dominican Republic, asserts, "is precisely what has been hap¬ Address Date of Rotation _ and finally Nicaragua again. The author pening.” Delivery Place . details changes in U.S. policy, from gun¬ Notable for His absence from Stein- Nemet Auto International boat diplomacy (in which an individual bach’s equations is Allah. But if Steinbach World's Largest Distributor of Tax-Free Cars 153-03 Hillside Avenue. Jamaica. New York 11432 naval commander could decide to bom¬ undervalues the power of faith, Mamun NEMET) Telephone (212) 523-5858/Cable NEMETAUTO bard a country or land troops to protect Kurdi incorporates it into his insistence on Toll Free 800-221-0177 American personnel and property), the incompatibility of Islam and commu¬ through the “dollars for bullets” phase nism. He feels the West should welcome (used extensively in Haiti and the Domini¬ the strengthening of Islamic institutions, can Republic), and finally to the actions of because the “Muslim countries on the President Wilson to unseat President southern border of the U.S.S.R. should be BUY Huerta of Mexico, whom he considered viewed as a potentially strong safety belt immoral. containing the spread of communism.” This book not only provides a pithy re¬ This is so, he goes on, “because Islam is a view of American intentions and heavy- great unifier that can prevent the creation SELL handedness, it explains how a failed inter¬ of the social divisions that are the breeding ventionist policy led to our propensity to ground of communism.” back national dictators who promised to There is a good variety of stimulating INVEST maintain order and respect for American and contradictory opinion in this book. An lives and property. The United States did American reader should find refreshing the not fail because it suffered from indecisive¬ closing line of the final chapter: “Some Ed Joyce ness or a lack of ardor, but because it could recognition of both the meager rewards Retired FSIO not effectively rule such conquered places. and great costs of involvement and with it, —ROY F. SULLIVAN greater superpower caution, would be in LICENSED IN D.C. the interests not only of the United States and VIRGINIA and the Soviet Union but of the indigenous The Soviet Union and the Middle East: countries as well.” —DAVID NALLE Opportunities, Constraints, and Dilemmas. Edited by Mark V. Kauppi and R. Craig (AMOUNT Nation. Lexington Books, D.C. Heath, American Military Space Policy: Infor¬ 1983. mation Systems, Weapon Systems, and Arms CVERNOI^ Control. By ColinS. Gray. Abt Books, 1983- 'REALTY A Take a dozen or so men and one woman, $28. V.,HC give them various pieces of the Mideast puzzle to contemplate, put them all to¬ Military space policy offers the greatest 6257 Old Dominion Dr. gether in one book, and you may have challenge to defense policymakers. Much McLean, Va. 22101 recreated the Tower of Babel. Or, as the of the relevant technology is immature and Off: 821-8300 introduction to this volume says, you will its potential for revolutionizing the rela¬ Res: 821-2109 have some “fresh and sometimes contro¬ tionship between strategic offense and de¬ versial perspectives and interpretations.” fense can be only dimly seen.
10 FOREIGN SERVICE JOURNAL But, with these caveats, this study con¬ cludes that the United States has no practi¬ cal choice other than to be prepared to fight in space. Deterrence will probably Insure household goods not work. And even if it does, U.S. inter¬ est in denying the Soviet Union ocean sur¬ veillance and other reconnaissance capa¬ with Security bilities probably outweighs any hypothetical benefits that might be ob¬ tained from an antisatellite arms regime. and move overseas The analyses presented by Gray strongly suggest that, in the event of a general war, with peace of mind. the superpowers will fight for the control of space as they will fight everywhere else. As a Foreign Service Officer, you II benefit from special If the book has a defect, it is the com¬ low rates and invaluable reassurance. *xr' You can in¬ mon failure of such policy-oriented studies sure all household goods and personal effects, includ¬ to include technical models of the systems ing automobiles, anywhere outside the U S. Security's they discuss. The reader need not be a Government Service Policy covers goods in-transit and high-energy physicist to understand a at your overseas residence. wtf'Tall or write Paul Wood, the Manager of our Insurance technical description of a high energy laser Since 1 890 +» system—Scientific American proves this Division. ,ur' You can also monthly. A five-to-ten page appendix store the valuables you want to leave home with Security- could give the reader a feel for the magni¬ 1 ’ MOVING & STORAGE tude and tractibility of the problems in¬ the world's most experienced herent in projecting a coherent pulsed en¬ moving and storage company. Insurance Division ergy beam over a 1000-mile distance. Policymakers don’t talk the same language as particle physicists and don’t have time Call (202)797-5625 to read books like this. But their advisers 1701 Florida Avenue, NW Washington, DC 20009 need to know what lies behind the author’s flat statements on policy implications if they are to outline useful options for their principals. —FRANCIS X. CUNNINGHAM
From the Think Tanks FREE SQUASH The Challenging and Elusive Arctic Region. By Louis Rey. Significant Issues Se¬ MEMBERSHIPS FOR ries, Vol. 6, No. 5, Center for Strategic and International Studies. Georgetown University, 1984. 21pp. A report from CSIS’s Arctic AFSA MEMBERS Resources project, this brief paper outlines the economic and strategic importance of the north and describes some of the ambi¬ guities of the region (such as the question of Svalbard). But he cautions that the mili¬ tary preparations undertaken by both su¬ perpowers and their allies may be threat¬ ened by the growing opposition of the native peoples. ASFA members can now play squash at the Capitol Hill Nuclear Strategy and Strategic Plan¬ Squash Club without paying any membership or initi¬ ning. By Colin S. Gray. Foreign Policy Re¬ ation fee. By simply showing your AFSA membership search Institute, 1984- 130pp. $5.95. Gray outlines and discusses five major options card, you will pay only the court fees at Capitol Hill's for nuclear strategic policy and concludes most luxurious fitness facility. Located only a block from that current U.S. policy is on the right the Capitol South Metro stop, the Club also offers free track but that actual capabilities, especial¬ use of changing rooms, showers, and saunas before ly in homeland defense, will lag behind and after playing squash. There is a $10 annual process¬ doctrinal requirements for several years. ing fee, some restrictions apply. He also thinks that a consensus has emerged, among both the right and the Capitol Hill Squash & Nautilus Club left, in support of deterrence backed up by 214 D Street, S.E. • (202) 547-2255 a war-fighting capability.
JUNE 1984 11 The United States and South Africa: Realties and Red Herrings. By Helen Kitchen and Michael Clough. Significant Issues Series, Vol. 6, No. 6, Center for Strategic and Inter¬ national Studies. Georgetown University. 1984- 48pp. This study traces develop¬ ments in U.S. policy and the South Afri¬ DIPLOMACY DIPLOMATIC CAR SALES can political scene. The authors argue for a AND LEASING bipartisan consensus in the United States ALL MODELS centered on a policy that neither sets unre¬ OUR 20TH YEAR IN WASHINGTON alistic goals nor requires restricting con¬ CAVALIER VW tact with any particular group. Along the Foreign Service Stew ONLY 10 MINUTES FROM KEY BRIDGE way they criticize many of the proposals of 4045 LEE HWY. 703/525-1900 the “anti-apartheid dogmatists,’’ includ¬ By JAMES W. SPAIN ARLINGTON VA 22207 1 ing sanctions and disinvestment. 4 overseas posts 5 untenured years 1 tandem tour 3 Washington jobs 21 tenured ones 2 overcomplement times 1 Pearson position 2 limited career extensions 3 overworked ones 1 S/S line job 1 presidential award 2 big embassies 1 stretch assignment 1 AFSA membership 3 small consulates
Combine tenured and untenured years in large pot over slow fire. Blend in overseas posts and Washington jobs. Dilute The Only mixture with overcomplement times, adding overu>orkedones as contents come to a boil. Grate in big embassies and small CATHOLIC BOARDING HIGH SCHOOL tandem assignment to taste. Pour contents of main pot into baking dish, stir and cook for twenty years at 250 degrees. FOR BOYS IN COLORADO Garnish with stretch assignment, presidential award, and AFSA membership. Bake at 600 degrees for another decade grades 9-2 or until ingredients have all melted away. Serve at represen¬ tation or retirement function. College Preparatory • Fully Accredited • Religious & Lay Faculty Small Classes • Interscholastic Sports • Supervised Study Foreign Service life is like a stew. Once Social Progam • Religious Education • Complete Computer Program constructed, it is not easy to take apart. By Near Ski Areas • Stables and Horses the time the dish arrives on the table you may have forgotten the ingredients that Write or Call - The Headmaster went into it. Still, for those contemplating their own version of the above recipe, an The Abbey School Dept. F.S.J. inventory of ingredients can be useful. Canon City, Colorado 81212 Some are as mutually exclusive as oil and Telephone (303) 275-8631 water, others, like flour, add thickness to the mixture. You can never be sure until you try them—and all are prone to chang¬ ing their original properties from time to time. Let us begin with the most basic ingre¬ WASHINGTON, D.C. BOUND? dients: the bare bones of a Foreign Service career that, when boiled, will provide the RENT-A-USED CAR RENT-A-NEW CAR essential flavoring of a stew. Once, a diplo¬ matic career required attendance at the from $12.95 per day from $17.95 per day proper university. The written examina¬ tion was as broad as Harvard’s catalogue, FREE MILEAGE ALLOWANCE and in the oral, at least one aspirant had to respond to the question: “Why did you Ideal When Shipping POV or on Home Leave presume to come to this examination with a broken button on your right cuff?” To¬ Call DRIVE-A-BARGAIN (703)683-6400 day, the stew bones contain more varied 2850 Jefferson Davis Hwy., Arlington, VA 22202 marrow. The exam, with sections on po¬ For Fast Pick-up at Crystal City Metro litical, economic, consular, and adminis¬ trative matters and the "in-basket experi-
12 FOREIGN SERVICE JOURNAL ence,” now attempts to emphasize are the places and experiences added to the professional aptitude over social back¬ mix, in short, the nature of Foreign Service DEXTER'S INN & TENNIS CLUB A select but casual 17 room Country Inn and ground. work. According to a perceptive book by small resort situated at 1400 ft. above Lake The aging of these bones begins when an expert on the subject—Staffing for For¬ Sunapee in the mountains of southern N.H. Club-like atmosphere with fine food and ser¬ the successful candidate is offered an “un¬ eign Affairs, by William Bacchus—the sin¬ vice. 3 all-weather courts, pro. swimming tenured” appointment. Within four years, gle most important distinction to be made pool, hiking and bird sanctuary on grounds. Area boating, fishing, summer theater, mt. another panel decides whether or not to among all the various jobs in foreign affairs climbing and 3 excellent golf courses. Brochure, Box F. Sunapee. N.H 03782. offer a “tenured,” i.e., permanent, ap¬ is that between those done overseas and 1-603-763-5571: Mobil Guide - AAA pointment. If it does, the full-fledged For¬ those in Washington. Bacchus’s ideal per¬ eign Service officer has 20 years to rise son for overseas toil is what might be through the ranks to FSO-1. If he or she called “the compleat diplomat”: analyst, fails to do so, involuntary retirement is reporter, negotiator, entertainer, and area upon them. and language expert. His model for Wash¬ Above the level of FSO-1, another board ington is the “policy synthesizer”: one who controls access to the Senior Foreign Ser¬ brings together all the various strains vice. But even at these exalted heights, the within the department, other foreign af¬ senior FSO is still subject to selection-out fairs agencies, the Congress, and the pub- for low-ranking in class. After seven years as counselor, five as minister-counselor, and four as career minister, he or she must retire unless offered a limited career exten¬ sion of three years. And, the faster the stew SDFCU’s boils during the junior and middle period, the harsher the pressure in the senior years. There are some compensations to put fat MasterCard on the bones. Each year, every member of the Senior Foreign Service is considered for bonus pay. According to a formula, de¬ rived from a 14th century alchemists’ manual, this may range up to 20 percent of the fortunate one’s base salary (not, howev¬ er, in gold). The candidate may also (but not simultaneously) be awarded presiden¬ tial "distinguished” or “meritorious” rank, which, calculated according to a for¬ mula from the same manual, may bring in .. .your passport to either $20,000 or $10,000 additional. Fi¬ nally, the Senior Foreign Service officer financial convenience may accumulate annual leave without lim¬ it and receive payment for it upon retire¬ and economy ment. If enough overworked periods are added to a particular stew, this can mean an extra 6-12 months’ pay (which, if bet Widen your horizons with MasterCard®, the internationally- accepted credit card available through State Department Federal on a winning horse at the right odds, can Credit Union. With lower annual fees and higher credit limits produce a useful supplement to one’s regu¬ than many other financial institutions, a MasterCard® from lar annuity). SDFCU is your key to the world. Of course, a stew composed of only boiled bones would not be very tasty. It is the peculiar variety of spices that gives a STATE 2020 N Fourteenth Street DEPARTMENT Caller #200 Foreign Service career its particular aroma. Arlington, Virginia 22210 FEDERAL All kinds of people—civil servants, tem¬ (703) 558-8000—Metro area CREDIT (800) 336-4704—Cont. U S. porary reserve officers, staff “mustangs,” UNION (800) 572-2033—Virginia itinerant scholars, minority candidates, and political appointees—have been fitted laterally into the Foreign Service hierarchy through such exotic measures as the Rog¬ ers Act of 1946, the Wriston Plan of the 1960s, and the Foreign Service Act of 1980. These redesignings may have made the system difficult to understand and navigate, but few would deny that they have added flavor and substance to the stew. But not only people add spice to the stew. Even more important in seasoning
JUNE 1984 13 lie, and crafts them into a viable point of usually in big cities with big facilities. But view. you are less likely to find yourself doing Our Foreign Service person, regardless anything beyond your own specific politi¬ of rank or experience, constantly faces the cal, counselor, administrative, or econom¬ question of how much of what kind of ic chore. You may never have the pleasure work he or she wants to do both overseas of having the ambassador stop you in the and in the department. In many cases, this hall to ask “Joe (or Jane), what do you DIPLOMATIC CAR SALES choice will have more impact on personal think last night’s vote in the parliament AND LEASING life than any made by a tenure, promotion, really means?” Indeed, you may never even ALL MODELS or pay board. Indeed, if one could some¬ have the satisfaction of knowing that he how take all the factors that influence knows that you are Joe—or Jane. OUR 20TH YEAR IN WASHINGTON CAVALIER VW quality of life and run them into a comput¬ In the smaller, more remote posts, you er for an ambassador, an assistant secretary may find yourself more concerned with the ONLY 10 MINUTES FROM KEY BRIDGE of state, a vice consul in an embassy, and a relative side effects of different kinds of ARLINGTON VA 22207 'UO/3.*3703/525-1900 I VUU desk officer in the department, the results anti-malaria pills than with the quality of would probably show that the ambassador competing opera divas. And you may be and the vice consul have more in common forced to conclude that the department not than does either with the assistant secre¬ only doesn’t know that you are Joe—or tary and the desk officer—and vice versa. Jane—but doesn't even know where Oua¬ Washington and the field are two different gadougou is. However, you will make ways of life. more money (hardship, danger, education, FORMERLY SHERRY TOWERS HOTEL In Washington, the Foreign Service etc., allowances). You will almost willy- person works with one group of people and nilly be a member of the country team. now offers lives (in neighborhood, church, or bar) Whether you love or hate your principal Special Rates with another group. Overseas, the two officer, you will know him or her—and groups, whether American or foreign, are vice-versa. And, unless you are extraordi¬ for apt to be the same. In Washington, a larg¬ narily lowly and unlucky, you are likely to AFSA Members er apartment to celebrate a pay raise or to be addressed at least once as “Excellency" accommodate a new baby is a matter of by some local citizen and get on a first- 2117 E St., NW, Washington DC 20037 personal finance. In an embassy, it often name basis with one or more visiting (202) 861-8200 (800) 424-2859 turns on how effective the administrative American senators, generals, or movie officer of ten years earlier was in acquiring stars, to whom you play “escort officer." property and on the personality of the cur¬ Most ego-satisfying of all, you may find rent housing czar. yourself “flying the flag” on your house A Special shop that provides In Washington, with an occasional ex¬ your children with special toys , and car when the principal officer is away. ception for the president or the secretary, Our party planner coordinates (Not long ago, all these things happened birthdays , graduations , showers , etc. no decision, however well-synthesized, is to one brand new FSO in his first six weeks Send $1°°for catalog with shop¬ ever final, and no implementation, howev¬ as vice consul on Zanzibar.) ping & party information. er urgent, is immediate. In the field, when The Washington portion of the stew is the consular officer says “ineligible" or the less savory and exotic, but the shape of the (Bnce upon a time ambassador “I'm not going to ask the for¬ potatoes is still important. The opportuni¬ HO. Box 1398, Vienna , Va. 2218-1398 eign minister about this nonsense again," ty for congressional testimony may give that’s usually that. Nevertheless, work in you a two-column-inch addition for your the field, however satisfying, has its disad¬ mother’s scrapbook. (Spouses don’t seem vantages. There is the matter of promo¬ to keep these anymore.) Participation in tion. Washington jobs seem to produce the department's noon press briefing can promotions faster and more regularly. bring its own brief immortality. An S/S There is also the question of the next post. line-officer job, or that of a sixth or seventh However open the “open assignments” floor staff assistant, carries with it one of process, the assignment panel is down the those periods of overwork that strains fam¬ hall in Washington, and chance encoun¬ ily relationships and alienates colleagues— ters in the cafeteria are a regular possibil¬ but improves telephone techniques and es¬ ity. Embassy Kathmandu is half a world tablishes an image and contacts that pay off away. And, in Washington, working in the future. Still, in terms of job satisfac¬ spouses can ride bicycles almost anywhere. tion, it is probably less flattering to be Overseas, the tandem trail is narrow and known as “that SS/NEA fink who made us twisting. rewrite the memo three times” or “the un¬ When making a stew, a simple decision der secretary's favorite dog-robber” than it to use so much meat and so many potatoes is to have a moment of history as "Joe, who is not the final one. What kind of meat and turned down the defense minister’s neph¬ how to cut the potatoes are also important ew for a visa for the third time.” matters. Next to the Washington-overseas Both overseas or in Washington, there distinction, how each job is sliced can be is the “stretch assignment”—holding a Georgetown Park the most important difference. Overseas, job a rank or two above your grade. It is 3222 M. Street, N.W Washington. D.C. 20007 (202) 342-1506 big embassies have their charm. They are encouraging to know that in some in-
14 FOREIGN SERVICE JOURNAL stances the perceptive eye of an assistant secretary can be as important as the mea¬ sured judgment of a board and that you don’t have to wait until you are a career minister to be an ambassador. Of course, if your "stretch" was a really early one, you There’s a New State may find yourself the only "Excellency” among the first secretaries at your next post. And, several years later, when the in Washington boards have moved in their glacial way (and you have even served on a couple of them) you may find that you now have the rank for the job but that there isn’t a job— And, we’re located right where Should you require a meeting/ conference/entcrtainment some bright young first secretary has been you want to be . . . the State Department, George Washington room, we have several to meet “stretched" to fill it. (Or some ageless po¬ University, the Kennedy Center your needs, seating 10 to 7 S litical appointee has pre-empted it.) and most government agencies. associates. Catering is also avail¬ Whether in Washington or elsewhere, Our guests stay in spacious suites, able. For your dining pleasure there are also quiet times. It seems to be a with fully equipped kitchens, we recommend our Cafe, for less than the price of most featuring a wide range of fact of life that if you haven’t been over¬ rooms in Washington. Our appetite-pleasing entrees. complement yet, your time is coming. Or, rates for weekends, and Come by and visit if you haven’t been traded to another agen¬ longer stays, are our new state cy, given a Pearson position, or been told equally attractive. in Washington. to "go write a book or at least read one" as a diplomat-in-residence or foreign affairs fellow, you can count on such an experi¬ ence in the future. Much to your surprise, you may even find the experience a pleas¬ FORMERLY SHERRY TOWERS HOTEL ant and profitable one. At times you may wonder if it is a stew (202) 861-8200 2117 E St. NW, Washington DC 20037 (800) 424-2859 or a pot-luck in which you are spending your life. If you insist on being rational, you may want to climb out of the pot, either briefly or permanently. The world outside is now full of appetizing fare: there are one-time colleagues earning six-figure salaries as transnational executives and Water pollution. four-figure ones as adjunct assistant pro¬ fessors. There are bookbinders who can It’s enough to make you sick. barely pay for their glue and coin collectors With all the pollutants that could be contaminating your who are financing their grandchildren’s tap water today, you just might be jeopardizing your health college education. Still in the building is a with every glass you drink. If that possibility concerns whole stable of confirmed war-horses who you, there's a home water purification system you should classify and declassify, consult and com¬ know about: the Pure Water distiller. Even if you don't ment, for as many hours a week as their believe there's a water pollution problem, maybe you should annuities permit. write us anyhow —just to be on the safe side. It is hard to find a proper simile for it all. But, perhaps, that of a stew is as good as any, and, for an essay about a stew, □ Please send me complete product Information. Kipling in the “Ballad of the King's Jest” □ Please send distributorship information. has given us some fine words with which to end: NAME, The lid of the flesh-pot chattered high, The knives were whetted and—then came I ADDRESS To Mahbub Alt, the muleteer. Patching his bridles and counting his gear. WRM DISTRIBUTORS CITY Crammed with the gossip of half a year. for But Mahbub Alt the kindly said STATE, "Better is speech when the belly is fed. ” So we plunged the hand to the mid-wrist deep In a cinnamon stew of the fat-tailed sheep, ZIP _ (JPureWaterlnc. And he who never hath tasted the food, By Allah! he knoweth not bad from good. PHONE
BILL McMENIMEN, P.0. BOX 116, N. READING, MASS. 01864 (617)664-3304 James Spain is a former ambassador to Turkey “Improving the quality of life through the quality of water.” and a mem her of the ATS A Governing Board.
JUNE 1984 15 the difference between propaganda, for Moscow. But on the whole, his diplomatic however worthy a cause, and journalism.” appointments have been disappointing, to New York Daily News, January 20 say the least.” James Reston in the New York Times, "A Senate Democratic staff report says the March 21 CLIPPINGS managers of Radio Free Europe and Radio Liberty have so weakened the controls over program content that commentators hos¬ “Mark Austad is a big, amiable bull of a tile to the United States are allowed to man who carries around his own china broadcast to Soviet bloc audiences.” shop. He is the American ambassador to The Chief Diplomat Joel Brinkley in the New York Times, Norway, a hero in unheroic times, February 22 hemmed in by the flummery of diplomatic “Mr. Reagan is treated throughout [For¬ protocol—a John Wayne in a post more mer Secretary of State Alexander Haig's Media Conspiracy suited to a Henry A. Kissinger. There is book Caveat: Realism, Reagan, and Foreign nothing suave or subtle about him; he has Policy] as an affable, not very involved “Rumsfeld Resumes Outside Work Dur¬ a genius for antagonizing the anti-Ameri¬ president, who more often than not let Mr. ing Lull in Mideast Activity” can clique in Norway Meese or somebody else speak for him. Headline, Washington Post. March 8 “Austad isn’t a diplomat of the striped- ‘Simply put, Ronald Reagan is a nice guy,’ pants, lace-handkerchief set, to be sure. Mr. Haig says, but not very interested in “New U.S. Strategy on Mideast Begun” But a lot of people think he’s one of our foreign affairs Mr. Haig notes with irri¬ Headline, New York Times, March 8 best.” tation how White House aides treated for¬ Jack Anderson, April 21 eign affairs as some annoying encumbrance Protecting Diplomats that was only useful when it enhanced the "Q: Other than being a crony of Ronald president’s political image.” ’“It is essential for the U.S. to take all the Reagan, what qualifications does William Bernard Gwertzman in the New York Times. defensive measures that we can that are A. Wilson have to become the first U.S. April 18 appropriate for our society and the mission ambassador to the Vatican in 117 years?... of the places that we are worried about, “A: The Wilsons and the Reagans are "Asked in an interview with the Washing¬ such as our embassies,' Shultz said. 'But I old friends who have spent many vacations ton Post what he had learned in the White do not think a purely defensive posture is together, particularly in Mexico No House, the president said: “I think I was adequate and we must think through, as a outstanding qualifications are needed for surprised at how much...percentage of society, other aspects of this problem. the position of U.S. ambassador to the your time and effort and thinking is devot¬ We’re in the process of doing that.’” Vatican.” ed to the international situation.” Bruce Dranke in the New York Daily News, Walter Scott in Parade, March 18 Lou Cannon in the Washington Post, April 19 January 23 Etcetera “'Pre-emptive action against ‘state-sup- International Broadcasting ported terrorism,' as suggested by Secre¬ “Eavesdropping; blacklists; cover ups; the tary of State George P. Shultz, is more corruption of credibility. Our propaganda “In the last three years the content of risky and less practical than foiling attacks agency will sink in its own sleaze as long as [VOA’s] English-language broadcasts has when or before they occur, according to its standards are set by The Man Who become so blatantly self-serving of Reagan the shadowy world of terrorism specialists Never Lied.” administration policies that in Greece it is in Washington and New York ” William Safire in no more credible—and perhaps less so— “Simulation training for officials not the New York Times, March 2 than Radio Moscow. The major difference normally protected by the Secret Service— between the two is that Radio Moscow such as ambassadors or senior members of prefers symphonic music while the VOA the National Security Council staff—is "Patriotism may not be ‘the last refuge of a promotes bubble-gum music.” currently the ‘in’ thing, according to scoundrel,’ as Dr. Johnson said it was in Sally G. Greenway in the New York Times, sources in the various organizations that the 18th century. But militarism, often March 19 specialize in combating what the special¬ disguised as patriotism, is the first refuge ists call unorthodox warfare.” of a bankrupt foreign policy, as Ronald "Congress is tampering with the Voice of Russell Warren Howe Reagan is proving in the 20th. America, which broadcasts news and com¬ in the Washington Times, “President Reagan’s consistent eleva¬ mentaries in dozens of languages without April 5 tion of militarism over diplomacy creates a any political bias. The U.S. doesn’t need clear and present danger to the internal propaganda to promote its ideals. The Political Ambassadors and external security of the United States. VOA is a triumphant success because its Presidents have been impeached for independence is so well known “Mr. Reagan's appointments to most of less ‘‘[The proposed Radio Marti broadcasts the principal embasssies have been a dis¬ “Internally, Mr. Reagan’s militarism to Cuba are] propaganda [but] Congress grace. There are some obvious exceptions. threatens America’s economic stability and insisted on incorporating Radio Marti into He appointed a couple of old hands like Americans’ constitutional freedoms. Ex¬ the VOA, unlike Radio Free Europe and Arthur Burns to Bonn and Mike Mansfield ternally, it threatens our relations with our Radio Liberty, which are kept separate to Tokyo, who have been very successful. allies and the survival of the world.” .... It’s depressing that [Secretary of State He has also appointed one or two Foreign John B. Oakes in the New York Times George P.] Shultz and Congress can’t tell Service officers, such as Arthur Hartman to January 9
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JUNE 1984 17 A madou-Mah car M’Bow, director general of UNESCO, addresses the U.N. General Assembly. The Reagan admin¬ istration has criti¬ cized his manage¬ ment of the organization, but a 1979 U.S. General Accounting Office study said its man¬ agement procedures were "unique and forward-looking. ” UN/Migud Jimenez
REFORM OR WITHDRAWAL
The United States does not need to withdraw from UNESCO but to use its influence more effectively to guide and monitor programs and personnel
SEYMOUR MAXWELL FINGER
LAST DECEMBER, the United States informed the which we subscribed in UNESCO many years ago.” U.N. Educational, Scientific, and Cultural The decision to serve notice on UNESCO followed a Organization of its intention to withdraw recommendation by Gregory Newell, assistant secre¬ 4 from that body at the end of 1984. The tary of state for international organization affairs. It letter of notification, sent from Secretary of State was endorsed by Jeane Kirkpatrick, U.S. permanent George P. Shultz to Amadou-Mahtar M'Bow, its di¬ representative to the United Nations, Jean Gerard, rector general, stated that “we have been concerned representative to UNESCO, and Elliott Abrams, assis¬ that trends in the policy, ideological emphasis, bud¬ tant secretary for human rights. get, and management of UNESCO were detracting But this solid phalanx of support by top adminis¬ from the organization’s effectiveness. We believe that tration officials was not universally shared in the for¬ these trends have led UNESCO away from the original eign affairs community. Many American diplomats principles of its constitution For our part, we are and professional bodies, particularly the U.S. Nation¬ convinced that we can develop other means of cooper¬ al Commission for UNESCO, a quasi-governmental ation in education, science, culture, and communica¬ body that advises the State Department, voiced their tion which will more clearly embody the principle to vigorous opposition. A month before the withdrawal notice was issued, the commission affirmed in a letter Seymour Maxwell Finger is professor of political science at to Newell that it was “convinced that the best means the City University of New York and director of its Ralph of serving U.S. interests in UNESCO is to press for Bunche Institute on the United Nations. A career diplomat reform from within...in concert with our friends and from 1946-71, he served for 15 years at the U.S. Mission allies wherever possible.” At a special meeting in June to the United Nations, the last five as an ambassador, and 1982, the commission’s five working groups conclud¬ has written extensively on the United Nations. Two gra¬ ed unanimously that the United States should remain duate interns, Dolly Udemezue of the City University Gra¬ in UNESCO and the effectiveness of its participation duate School and Marianne Woo of Columbia University, should be improved; it also made specific recommen¬ assisted in the research for this article. dations for such improvements. When Newell re-
18 FOREIGN SERVICE JOURNAL quested the commission’s views in 1983, it consulted admitted to the Western European and Other Group. more than a dozen of its national associations and they And for some years, the western governments and recommended unanimously that the United States media have been concerned by attempts to establish a remain. In addressing some of the concerns that New World Information and Communication Order. prompted consideration of withdrawal, Leonard Suss- But on all of these issues the West has stayed in the man, executive director of Freedom House and a dele¬ arena and negotiated. Its success in holding down gate to the 1983 UNESCO general conference, con¬ UNESCO’s current biennial budget and negotiating cluded that the negotiations and resolutions reasonable resolutions at the 1983 general conference "generally favored the western free press position.” have been notable. The World Press Freedom Committee wrote: “If any¬ Furthermore, these problems exist to varying de¬ one is looking at an assault on the media at this grees in most U.N. agencies (and, of course, in almost conference serious enough to justify a U.S. withdraw¬ any large bureaucracy). For more than a decade, coop¬ al from UNESCO, they won’t find it.” eration within the entire U.N. system—not just There is no denying that UNESCO faces some serious UNESCO—has been hampered by the introduction of problems, although the scope and impact of those extraneous political issues into the discussions of spe¬ difficulties may not be as severe as the Reagan admin¬ cialized agencies and conferences. Apartheid in South istration believes. The Shultz letter could have some Africa, the inequities of the current international eco¬ worthwhile effect; certainly it has demonstrated to nomic order, and the fate of the Palestinians are im¬ UNESCO’s director general the importance attached by portant political issues that should be and are exhaus¬ the United States to reform of the organization. But tively discussed at the United Nations itself, the administration has acted precipitously and unilat¬ especially in the General Assembly. But the special¬ erally, without adequate consultation with its friends ized agencies and conferences are intended to address and allies. The 23 other members of the Organization the specific matters, including health, food, agricul¬ for Economic Cooperation and Development share ture, labor standards, human settlements, and the U.S. concerns over budget, management, and voting status of women. When controversial political and practices but were not given an opportunity to consult economic issues are pushed aggressively in these fo¬ on cooperative action before the U.S. announcement. rums, the result is excessive and costly duplication of The range of possibilities for encouraging positive General Assembly discussions that limits the agen¬ change by cooperative participation in concert with cies’ ability to achieve their particular goals. The sup¬ our allies has not been exhausted. porters of international organizations once argued John Fobes, a former chairman of the U.S. Nation¬ (along with the academic theorists of functional inte¬ al Commission and deputy director general of UNESCO gration) that habits of cooperation developed in tech¬ from 1971—77, states: nical, scientific, economic, and humanitarian agen¬ cies would gradually carry over into the political Threats of withdrawal are simply poor excuses, a cop¬ realm. Instead, if the U.N. experience is any guide, ping out. What is needed is that we make known our the reverse has occurred. purposes and our readiness and willingness to fulfill our The Reagan administration has also criticized the responsibilities to the world (while protecting our inter¬ size of UNESCO’s budget and its management prac¬ ests); that we state more clearly what it is that we want tices. But this is another area where problems have changed and how that could be brought about (not not been limited to UNESCO—they exist throughout simply by reducing a budget); and that we convince the United Nations and its specialized agencies. In others that we are prepared to stick in, both for the the U.N. secretariat itself, political pressures by battles and for the constructive projects that are crying for our full participation. member states have resulted in the appointment of many unqualified persons to official positions, there¬ by undermining the concept of an international civil THE PROBLEMS CITED by Secretary Shultz in service based, as the U.N. Charter describes it, on his letter to M'Bow are not new ones and are “the highest standards of efficiency, competence, and certainly not confined to UNESCO. Over the integrity.” Moreover, during the 1960s and '70s, the years since that organization’s creation in budgets of many specialized agencies rose dramatical¬ 1946, several U.S. administrations, as well as other ly, as new programs were promoted by the majority governments, have voiced their concern about both even as old programs that had lost their raison d’,etre particular matters and general management practices. continued to be funded because of inertia. Poor man¬ During the Carter administration, the State Depart¬ agement and inflation also worked to push the bud¬ ment was deeply concerned about the introduction of gets upward. Such problems are not unique to inter¬ extraneous political issues, such as the PLO and apart¬ national organizations; almost any Foreign Service heid, into UNESCO proceedings and about rising bud¬ officer can supply similar examples from U.S. agen¬ gets and faulty management—concerns shared by our cies. western allies. The U.S. National Commission, at its Yet there are certain factors that exacerbate these 1982 session, also expressed concern over these prob¬ problems in international organizations. In particu¬ lems and urged that U.S. participation be more effec¬ lar, the abuse of majority rule has caused substantial tively managed to deal with them. In 1977 an Arab- difficulties. Decision-making is based on the one- prodded Third World majority, backed by the Soviet country, one-vote principle, which equates 100,000 bloc, voted to deny Israel participation in any geo¬ people in Grenada with countries with the size and graphic group. The United States thereupon withheld resources of China or the United States (the U.S.S.R. its financial contribution until 1980, when Israel was has three votes). Contributions to the budget, howev-
JUNE 1984 19 going beyond the point of diminishing returns. In my own view, Kirkpatrick's tactics, like those of Moyni- han before her, may be well intentioned, but they are counterproductive. They tend to widen the circle of enemies and narrow the circle of friends. Much more can be accomplished by patient negotiation than by exchanging rhetorical brickbats and brandishing the punishing rod. Although these problems occur throughout the U.N. system, the Reagan administration appears to have singled out UNESCO because it has a reputation as one of the worst offenders, especially on budgetary matters. The Geneva Group of industrialized coun¬ WJ tries managed to hold UNIT O’s budget for 1984-85 mm to $374.4 million ■- hich represents a growth rate of only three percent over ti t previous biennium. Con¬ MlllS sidering the rate of gr wth of ,e U.S. budget, this is certainly a respectable In* re. at ibis modest growth comes on top of . :gur. already swelled by large budget hikes in the 1960s and 70s. For example, expenditures rose fr .. $1 ' Million in the 1975—76 1 biennium to $224 tr i Jtor. . 977—78 and $303 mil¬ er, are determined by a formula based on the mem¬ lion in 1979-80. ber's ability to pay. Thus a majority can be obtained UNESCO has also long ;• . , regarded in the United from countries that pay about one percent of the bud¬ States as one of the > o;-. a n and most-propagan¬ get. The Non-Aligned Movement, which comprises dized of the agencies in 3 981, an Ad Hoc Group on more than 100 countries, can and does dominate the U.S. Policy Toward the l ited Nations, which in¬ agenda and the debate. It is this group that must bear cluded three former Democratic secretaries of state— the main responsibility for UNESCO’s current prob¬ Dean Rusk, Cyrus Vance, and Edmund Muskie— lems and other difficulties throughout the U.N. sys¬ said: tem. Kenyan President Of all the specialized agencies, UNESCO presents perhaps Daniel Arap Moi the most troubling case of intrusion of retrogressive ideology and biased politics, with inevitable damage to meets M'Bow (bot¬ A T THE UNITED NATIONS itself, however, the its reputation and constructive programs. A conspicuous tom) at the UNESCO /\ United States does have powerful defensive example has been the effort of the Soviet Union and some headquarters build¬ # A weapons, including veto power over any ing in Paris (top). Third World governments to legitimize, under the ru¬ -^Security Council decision. The United As in other parts of bric of a “New International Information Order,” gov¬ the U.N. system, States also holds an effective, if unwritten, veto on ernment controls over the collection, transmission, and Third World coun¬ economic matters, for no major program can succeed publication of news by the press and other mass media. tries through blocs without the cooperation of the major contributor. But While calling for a “free arid balanced flow of informa¬ such as the Non- the United States cannot control the anti-western rhe¬ tion and news” internationally, these governments Aligned Movement toric or the plethora of resolutions. This has been a maintain a discreet silence about its absence in their own can control the or¬ matter of serious concern for Kirkpatrick, and she has countries, where news usually means government propa¬ ganda ganization’s policies attempted to deal with it through forthright speeches We believe the time has come to reassess the capacity while contributing and rebuttals at the United Nations and by taking of UNESCO, and certain other U.N. agencies, to function only a fraction of its careful note of how individual representatives vote budget. compatibly with their declared ideals and purposes. and speak. She says: "We operate as though there Where politicization, or gross inefficiency, has seriously were no difference between our relations with sup¬ impaired this capacity, and remedial efforts fail, the porters and opponents, with no penalties for opposing United States should consider alternative institutions or our views and values and no rewards for cooperating. ” mechanisms to provide their intended services. Our We act “as though we had no coherent national pur¬ preference is that the United States stay in UNESCO and poses that link issue to issue.” Under her guidance, aggressively affirm our own interests and ideals, and the United States has more frequently objected to work to restore the agency to its proper role; but if these other governments regarding their representatives’ efforts fail, we should not exclude the possibility of withholding financial support or even withdrawing antagonistic votes or speeches. Such tactics, if not from the agency. used to excess, can be very helpful and should be employed on important matters. But there is a limit The Reagan administration entered office deter¬ to the number of issues that can be usefully discussed mined to change this situation one way or another. It between capital cities. Often an embassy representa¬ fired its first salvo at UNESCO even before Inaugura¬ tive, with only a superficial understanding of an issue, tion Day. David Stockman, then director-designate of must talk with a foreign ministry official who under¬ the Office of Management and Budget, argued in a stands even less. Moreover, such a step should only be position paper written during the transition that the taken after consultation with the U.N. representa¬ United States should withdraw from UNESCO because tive; otherwise, one may needlessly antagonize him or of its “pro-PLO policies, and its support for measures her and require even more contacts between capitals, limiting the free flow of information."
20 FOREIGN SERVICE JOURNAL By 1983, the administration’s patience was clearly There has, of course, been a strong reaction. The wearing thin. Newell began a systematic review of the secretary general of the United Nations, Javier Perez U.S. relationship with UNESCO and conducted a sur¬ de Cuellar, quickly expressed his regrets and was as¬ vey of U.S. missions overseas and scores of private sured by the United States that the UNESCO action did groups involved in the organization’s work. In Octo¬ not portend a general U.S. withdrawal from the Unit¬ ber, Kirkpatrick spoke in congressional testimony of ed Nations. Director General M’Bow wrote to Shultz “our profound disapproval of UNESCO,” which, she in January expressing his regret over the U.S. decision said, “has succumbed to politicization,...creates ob¬ and addressing some of its charges. On the matter of stacles to a free press instead of promoting free ex¬ extraneous political issues, M’Bow argued that “a dis¬ change of information, discriminates against Israel, tinction should be drawn between the viewpoints ex¬ and...is utterly indifferent to fiscal restraint.” Clear¬ pressed by UNESCO’s individual member states and ly, the far right had singled out the organization as an the activities of the organization itself.” He stated easy target and was agitating for U.S. withdrawal. that it would be impossible to “cite a single case” in A major reason for the administration’s selection of which the activities of the director general or any UNESCO as the U.N. agency from which to withdraw UNESCO program activity were “contrary to the ideals seems to have been the effort in that body to promote enunciated in the constitution.” the New World Information and Communication Or¬ On budgetary and management questions, M’Bow der. This order, which was initially intended to ad¬ cited a September 1979 study by the U.S. General dress the dominant role of the West in the world Accounting Office that called UNESCO's management press, has several provisions that would encourage procedures "unique and forward-looking compared to government control of the media. Though strenuous other U.N. agencies examined” and said that plan¬ western efforts have thus far forestalled its adoption, ning and budgeting processes were “conceptually the western media understandably remain wary of sound.” The current assistant director general for ad¬ UNESCO. Consequently, the administration could ministration, George F. Saddler, is an American with hope that its decision would not meet a storm of long experience in budget and management. Also, adverse reaction from the press. In fact, the New York according to M’Bow’s letter, Congress was assured in' Times, usually considered liberal and internationalist, a State Department report of February 1983 that there produced an editorial in February that although gen¬ was nothing in UNESCO’s work program that would erally supportive of the U.S. decision concluded: require a cutback in U.S. contributions. This 40-page report was made to the Congress pursuant to the Despite its meanderings, UNESCO has promoted some Beard amendment of the 97 th Congress, which stipu¬ admirable programs in schools and laboratories, muse¬ lates that no funds can be contributed to UNESCO “if ums and libraries. Its thousands of publications in 70 that organization implements any policy or procedure languages do fulfill its mandate to maintain, increase, the effect of which is to license journalists or their and diffuse knowledge If UNESCO shows a willingness publications, to censor or otherwise restrict the free to add to this body of work and to abandon the rest, it could again make Americans eager and generous partici¬ flow of information within or among countries, or to pants. impose mandatory codes of journalistic practice or ethics.” As its conclusion, the report states: The Reagan administration has demonstrated a “UNESCO, to date, has debated but not implemented more skeptical, even negative attitude toward the policies or procedures of an anti—free press nature.” U.N. system than any of its predecessors. After 10 The report also observed that “UNESCO programs years of negotiations on a Law of the Sea Convention for the most part contribute to broad U.S. foreign conducted during four administrations (one Demo¬ policy goals and particular U.S. educational, scienti¬ cratic and three Republican), the United States was fic, and cultural interests.” That statement implies the sole major power to vote against the convention that some UNESCO programs are not consistent with and to refuse participation in the Preparatory Com¬ U.S. policy goals. While this situation is cause for mittee. This administration has also shown a marked concern and increased attention, it is not surprising lack of enthusiasm for multilateral aid institutions. for an organization of almost 160 members with vary¬ Its requests for U.S. contributions to the U.N. Devel¬ ing goals and interests. In fact, it suggests the need opment Program have been consistently low and, in a for more effective U.S. participation, rather than rare action, Congress has actually appropriated sub¬ abandonment. stantially more than the president requested. His re¬ quest of $750 million annually for the U.S. contribu¬ tion to the International Development Association, THOUGH UNESCO may have organizational which provides loans to the poorest countries, was 25 strengths and weaknesses, it should also be percent below the share recommended by A. W. Clau¬ noted that its field work, particularly the sen, the American serving as president of the World programs to reduce illiteracy and apply sci¬ Bank. It was also proportionately lower than the sums ence and technology to the advancement of the less agreed to by the other major contributors. When it developed countries, has made a significant contribu¬ came to UNESCO, this administration seems to have tion and been generally free of extraneous politics. wanted to shock the Third World countries and secre¬ The same may be said for the various international tariat, to demonstrate that there were limits beyond scientific groups affiliated with UNESCO, which gen¬ which it would not be pushed. Thus, though other erally opposed the U.S. decision. International re¬ administrations had misgivings, this one was pre¬ search on climate, oceanography, hydrology, chemis¬ pared, even eager, to act. try, conservation, neurobiology, and human
JUNE 1984 21 lowa) introduced legislation in March that would re¬ quire specific authorization from Congress should the executive branch decide to take the final step of termi¬ nating membership. In remarks before a Science and Technology subcommittee, Leach characterized the administration’s decision as "a unilateral expansion of executive prerogative, belying serious efforts to craft bipartisan, bi-institutional approaches to foreign policy.” Leach acknowledged that UNESCO had serious problems but argued that the United States should stay in and work for improvement. He emphasized that the U.S. government had successfully modified the organization’s behavior in the past, notably in defending the right to a free press, protecting Israel’s right of participation, and restraining budget growth. Furthermore, the administration had report¬ ed to Congress that “none of the programs included in the UNESCO organization plan pose any active, direct threat to a free press.” He contended that 40 percent of last year's American contribution to UNESCO was returned to the United States via fellowships to settlements brings important benefits to American Americans, payments by foreign students studying scientists and their counterparts around the world. here, and the procurement of U.S. equipment. The U.S. National Commission for UNESCO surveyed Leach’s amendment was introduced in the House over a dozen organizations familiar with the agency’s Foreign Affairs Committee but was not formally con¬ work. It reported unanimous opposition to withdraw¬ sidered. Instead, Chairman Dante Fascell (D.-Flor¬ al trom the respondents, a group that included the ida) proposed an amendment that called on the presi¬ National Education Association, the American Asso¬ dent to create a bipartisan commission to study U.S. ciation for the Advancement of Science, and the Na¬ differences with UNESCO. Once this was adopted by tional Wildlife Federation. the committee it effectively precluded consideration The strongest concern was expressed by those in¬ of Leach’s proposal, ending congressional attempts to Traditional-music volved in the earth sciences. Warren Wooster, a Uni¬ forbid U.S. withdrawal. However, no such bipartisan class at Bangkok versity of Washington oceanographer, noted that committee has been appointed, nor is one anticipat¬ School of Dramatic oceans cover 7 1 percent of the earth's surface. “Their ed. Arts sponsored by phenomena are grander in scale than any one country It is possible that UNESCO will take some remedial UNESCO (top), and can study alone, and they demand mechanisms for action before 1985 that will allow the United States to restoration project intergovernmental cooperation.” Wooster pointed remain in the organization. Indeed, the administra¬ of Buddha in Su- kotha region under out that through UNESCO’s information networks and tion has suggested that withdrawal is not inevitable. the organization’s its joint programs, American scientists enjoy access to In mid-February, Newell commented at a news con¬ supervision (bot¬ foreign research and countries that for political rea¬ ference in Paris that the Reagan administration would tom). Secretary sons could never be duplicated by government-to- reconsider its decision if UNESCO started to change its Shultz has said oth¬ government arrangements. ways, by, for example, improving management tech¬ er means can be de¬ Shultz's letter of notification to M'Bow said that niques, dropping “politically motivated anti-western veloped for interna¬ "we can develop other means of cooperation in educa¬ programs,” and concentrating instead on such techni¬ tional cultural tion, science, culture and communication.” But, to cal tasks as promoting literacy, fostering scientific activities, but so far date, I am not aware that any such programs are being exchanges, and preserving artistic treasures. He an¬ none has been pursued. The development of such channels outside nounced that the administration would soon appoint initiated. the United Nations would not be easy and would an independent panel of educators, intellectuals, and depend on the willingness of other countries to par¬ artists to assess the organization’s performance during ticipate, particularly the 24 members of the OECD. the rest of this year. This group, known as the Given the present state of U.S.-Soviet relations, one UNESCO monitoring panel, held its first meeting in cannot be optimistic about cooperation from the East¬ early May. ern bloc. Cooperation with the Third World outside At the same conference, however, Newell ex¬ UNESCO may also be difficult to achieve. The Islamic pressed his skepticism that sufficient changes would Summit Conference in Casablanca in January issued a be made. His pessimism notwithstanding, it is possi¬ declaration in strong support of M’Bow (who is a ble that enough progress will be made toward meet¬ Senegalese Moslem) and urged the United States to ing U.S. demands so that some accommodation can reconsider its action. As a major faction of the Non- be worked out. In fact, the shock of the U.S. an¬ Aligned Movement, the Islamic group is certain to nouncement may help trigger such reforms. Certainly have substantial influence in determining that bloc’s the notification has attracted the attention of the di¬ attitude on this issue. rector general. It has also put the Third World on The administration’s announcement also provoked notice as to the limits of U.S. tolerance for promoting a protest among some congressmen. In one attempt to projects without due consideration of their conse¬ avoid withdrawal, Representative Jim Leach (R.- quences, budgetary and otherwise.
FOREIGN SERVICE JOURNAL THERE ARE ALREADY several efforts underway certain desirable changes did occur. The secretariat to identify and encourage the necessary and other member states became more keenly aware changes. In an effort unrelated to that of that the United States could not be taken for granted. Leach, Representative James H. Scheuer More attention was given to violations of trade union (D.-New York) conducted his own investigation of rights in Eastern Europe and to budgetary restraint. UNESCO. In an exchange of letters with M’Bow, he And, when the United States rejoined the ILO in obtained the director general’s agreement to cooperate February 1980, the secretariat and other delegations fully with a review of the organization's activities by were notably more attentive to U.S. concerns. This the U.S. General Accounting Office and to provide time, however, it is to be hoped that the changes will access to UNESCO’s internal documents, financial re¬ be made before the United States makes good on its ports, and budget records. At one time, M’Bow in¬ promise and actually withdraws. sisted that such an inquiry could only be conducted if When considering the nature of these changes and it were formally requested by the Reagan administra¬ the likelihood of their implementation, one should tion and not simply by the Congress. Although the avoid putting the entire burden for improvement on administration has apparently declined to make such the director general and his staff or on the Third an official request, a GAO team has been in Paris World countries. For some years, the U.S. National reviewing UNESCO papers and has encountered no re¬ Commission for UNESCO has urged that the United sistance despite its lack of executive branch sponsor¬ States remain in the organization and work to increase ship. the effectiveness of its participation. At its 1982 Perhaps most important, in March the other 23 meeting, the commission concluded that the United OECD countries joined the United States in submit¬ States, because of its financial contribution, its hu¬ ting to the director general a working document that man resources, and the appeal of its way of life, has contained a list of complaints and suggestions for more potential influence within UNESCO than the change. The paper reportedly states that it is of "high¬ one-country, one-vote system might imply. To exer¬ est importance” that the United States not withdraw, cise that influence, the United States should partici¬ because losing the U.S. contribution and its technical pate more actis'ely in planning and initiating pro¬ expertise could be “fatal” to UNESCO. To avoid such grams. The report urged the United States to take on an occurrence, the authors urge the organization to a greater role in monitoring UNESCO's performance make several changes, including giving major con¬ and to devote more effort to finding and recruiting tributors to the annual budget of about S 185 million qualified Americans for staff positions. At last count more control over spending. The paper also calls for the United States had filled only 90 of its allocation of reforms designed to eliminate or minimize the intru¬ 123 professional posts. Greater emphasis should also sion of extraneous political issues in UNESCO oper¬ be placed on selecting a highly qualified staff for U.S. ations. Despite the unofficial character of the report, delegations to UNESCO and on ensuring the continuity the clout of this group could give their statement a of this representation. Similar efforts must be made by significant impact. other OECD countries, with which there should be In the past, such displays of muscle have succeeded active and continuing consultations. These should in changing policies both at UNESCO and throughout involve more contact with professional and scientific the United Nations. When Israel was denied effective groups in the OECD countries. participation in UNESCO in 1977, the United States It is not enough for the United States to deal with suspended its contributions to the budget, an action UNESCO through negative, damage-control oper¬ that stimulated the reaching of an agreement in 1980 ations. If we want a UNESCO that measures up to its that gave Israel membership in the Western European constitutional goals, we and the other OECD countries group. The United States then resumed its contribu¬ must devise constructive programs and then work tions. Also, in the last two sessions of the General with the organization’s secretariat and cooperative Assembly, U.S. warnings that it would walk out and Third World countries in making them effective. We suspend contributions to the U.N. budget if Israel have not done this at all well in the last decade and a were denied participation in that body appear to have half. It would have been far better for the U.S. to put been a factor in forestalling such actions. For obvious its own house in order, as the U.S. National Commis¬ reasons, Israel has expressed its concern over the possi¬ sion has repeatedly urged, rather than to serve notice bility that the United States may soon actually leave on withdrawal. Though the commission has made UNESCO. comprehensive, well-considered proposals for more In 1977 the United States went through a similar effective U.S. participation, these have largely been episode with the International Labor Organization. ignored. Moreover, the United States did not engage The U.S. withdrawal from the ILO was attributed to in serious consultations with its allies before its with¬ “four matters of fundamental concern: (1) the erosion drawal announcement. of tripartite representation, (2) selective concern for The shock administered by the Reagan administra¬ human rights, (3) disregard of due process, (4) the tion may yet do some good, but only if it results in increasing politicization of the organization. ” Knowl¬ corrective action by all parties concerned—the edgeable insiders, however, have confided that the UNESCO secretariat, the Third World members, and real reason was to placate the late George Meany, then the OECD countries. Withdrawal may have to be the president of the AFL-CIO. Because the president was end result, but it should be the last resort. If the not prepared to accommodate Meany on the in situ United States does leave UNESCO, it will be a sad day picketing issue, he sought to make amends by getting both for us and for international educational, scienti¬ tough with the ILO. Whatever the real motivation, fic, and cultural cooperation. O
JUNE 1984 23 An Interview with Kathleen Bell
WHAT HAPPENED TO U.N. ECONOMIC AND SOCIAL PROGRAMS
JOHNJ. HARTER
FROM 1944-74, Kathleen Bell was a special¬ Well, we were concerned with theoretical econom¬ ist in U.N. economic and social operations at ic issues, but we didn't speak of “economic develop¬ the Department of State. Here she recalls the ment” in those days. When the Dumbarton Oaks formative years of the United Nations and Conference hammered out a preliminary draft of the several of its specialized agencies. The interview was charter, we assumed that including economic and conducted in Washington and Geneva in 1981 on social matters would give the U.N. a better chance to developments she participated in and witnessed. survive. Remember, such international economic and social activities as existed before World War 1! the After the 1945 San Francisco conference, many Narcotics Commission and the International Labor people felt the United Nations would usher in a Organization, for example—were limited and not di¬ new era of peace and prosperity. Today few have rectly under the authority of the League of Nations, such confidence in the U.N. What happened? which was mainly concerned with political questions. 1 think we oversold the United Nations in those But State Department planners concerned with the days. We had a high-powered staff, riding the crest of post-war period focused mainly on political and or¬ a wave, going all over the country, holding hearings ganizational issues—as did their successors. modeled after the old town meetings, trying to build grass roots support for the new U.N. Charter. We Who were the planners? oversold collective security, international dispute set¬ Midway through the war, President Roosevelt cre¬ tlement, and what the United Nations could do to ated a prestigious Post War Programs Committee, maintain the peace. This created a concept of the responsible to Secretary of State Cordell Hull. We U.N. in the public mind that the Washington politi¬ called it the PWC, and its executive secretary was Leo cal structure was not really committed to—that just Pasvolsky, then a special assistant to the secretary, by supporting the United Nations, we could save who had absolute confidence in him. Pasvolsky was, succeeding generations from the scourge of war. incidentally, my first boss at the State Department, It’s difficult today to recall the national confidence when 1 reported to duty in March 1944. The papers of the American people at that time. We felt that we, the secretariat prepared for the PWC outlined the as Americans, could do anything—we had the brains, U.N. Charter. the know-how, the organizational savvy, and there wasn’t anything we couldn’t lick. There was true How much interaction was there between those idealism, and a belief in rationality and sanity. We who were preparing for Bretton Woods and the also had the welfare of the world at heart. You see, we work of the PWC, while it was preparing for the had come through a bad time and a bad war—and we San Francisco Conference? felt we had saved the whole world. We wanted to There was little interaction between the PWC and believe the war had achieved a purpose, and we hon¬ those in the Treasury who had primary responsibility estly felt—and 1 still believe—that the U.N. Charter for preparing for Bretton Woods, in part because was a workable basis for an organization that would Secretary of the Treasury Henry Morganthau had further that purpose. more influence with President Roosevelt than Secre¬ But it soon became apparent that the United States tary Hull did. Treasury officials didn’t want the inter¬ was not prepared to use the U.N. for the purposes it national financial institutions to be entrapped by was set up to serve. Those who had not been “present U.N. political decisions—for example, with whether at the creation" were suspicious of it and either sought Spain or the Indochinese states should be in or out of unilateral solutions to current international affairs or anything. Also they were not enthusiastic about the created new organizations to serve their purposes. poorer countries becoming members. But the State Department couldn’t ignore those political questions, The U.N. gives a lot of attention these days to as it was considering the requirements of the post-war Third World development. Was that anticipated w'orld—and especially the need for instruments of at San Francisco? collective security. Clearly the Treasury didn’t want State Department types to have any influence or say in John J. Hai ter is a former Foreign Service officer who is the formation and development of international finan¬ interested in oral history projects. cial institutions.
24 FOREIGN SERVICE JOURNAL Did the two different sets of attitudes reflect dif¬ but perhaps with a view to formulating suggestions ferent visions of world peace and order? for all concerned. We never dreamed that ECOSOC Yes, I think so—and I think it’s unfortunate that would set up regional economic commissions, or get we never really aligned those two points of view bet¬ into economic development. But within a short time,
ter, that we didn't give more attention to the interac¬ it established economic commissions for Europe, Lat¬ Mr tions and interrelationships in the international po¬ in America, and Asia and the Far East. The Economic litical and economic system. For example, while we Commission for Africa came later. By the mid- 1950s, were laying the foundations of the United Nations in ECOSOC was getting into the whole question of Third 1945—46, nobody really thought of the economic World development. problems that dozens of very small countries would Kathleen Bell (left) face after they acquired political independence. The Is there no effective U.N. coordinating mecha¬ confers with ECOSOC people concerned with the international economic nism? President George side were preoccupied with the collapse of the world ECOSOC set up the Administrative Committee on Michalowski of Po¬ economy in the 1930s, which they perceived as hav¬ Coordination for that purpose, back in 1945. It’s land, U.S. Ambas¬ ing been the underlying cause of World War II. They composed of the directors general of all the specialized sador Philip Klutz- felt the way to world peace was through a stable and agencies, and it is chaired by the secretary general. nick, and United growing world economy, which, they felt, would Over the years the heads of other major U.N. pro¬ Kingdom Ambassa¬ dor Dame Barbara automatically bring the political side into line. By grams have been added, as the programs were created. Salt. "We never and large, they tended to think private enterprise The ACC itself meets twice a year, and it has created dreamed that could take care of the world’s economic problems— subcommittees to take care of special problem areas. ECOSOC would set up that if you just turn business loose, it would do the Dag Hammarsjkold was the most effective chairman regional economic job through investment and trade better than govern¬ the ACC ever had. He was trying to make it more commissions, or get ment. But this doesn’t guarantee stability. Govern¬ effective in the late 1950s—and he was succeeding. into economic de¬ ments also have responsibilities—in curbing excesses, Then he died in that plane crash in the Congo. In velopment. " for example, and certainly in developing the infra¬ addition, the Ad Hoc Committee on Administrative structure that is needed before significant private in¬ and Budgetary Questions is a group of budget experts vestment will take place. that is supposed to ask searching questions on pro¬ posed expenditures of the specialized agencies, as well There are a lot of complaints in the United States as those of the U.N. itself. One U.S. representative, these days that the one-nation, one-vote formula Bill Hall—who eventually became director general of through which General Assembly resolutions are the Foreign Service—was extremely effective in the passed does not realistically reflect contemporary 1960s. But the influence of the ACABQ is less than it world politics. should be, in part because as budgets have grown and That resulted from our whole concept of democra¬ become more complex, it has not had the time to cy. This was not only built into the General Assembly undertake an adequate review of all the agencies. and councils, but also into the conferences and assem¬ blies of the specialized agencies of the U.N. system. What was the U.S. position at San Francisco on As part of that, we pressed at San Francisco for the relationships between the specialized agencies creation of a viable U.N. Trusteeship Council and a and the United Nations? committee on non-self-governing territories to ensure President Roosevelt opposed the desire of some to that peoples formerly ruled by others would eventual¬ ensure U.N. control over the specialized agencies. In ly obtain their national independence. But I don’t November of 1944—before the conference—he de¬ think anyone at that time expected those bodies to cided to support their “independence.” Ambassador succeed as completely and as quickly as they did. I Winant, as a former ILO director general, urged con¬ certainly don’t recall any discussion of how that would tinued autonomy for the ILO, as did U.S. trade union transform the whole political landscape of foreign af¬ leaders. fairs. But it did—and it brought into existence the many nation states now represented in the U.N. What was the result? The consensus favored separate intergovernmental How did the concept of the Economic and Social organizations related to the United Nations through Council evolve? negotiated agreements that would call upon them to U.S. economists wanted to create a U.N. economic receive U.N. policy guidance and U.N. budget re¬ council to discuss, research, and prepare studies on view. This was written into the charter—but it has broad issues, like theories offull employment and how never been successfully or fully implemented, because to increase production. Other countries advocated a there is a separate lobby within each government separate social council attached to the U.N. to set up pressing for more resources and less central surveil¬ standards of social justice, for example, that countries lance for each organization—with supporting echoes might or might not adopt. In the end, at San Francis¬ in the legislature and press of each country. co, the two concepts were merged into ECOSOC. What were the origins of UNESCO? Did ECOSOC evolve as you expected it to? An International Institute of Intellectual Coopera¬ No, it didn’t. We thought the secretariat would tion had been set up in Paris after World War I, and prepare academic studies that the council might just the French wanted to establish a new and independent debate, along with annual reports of the specialized organization to replace it. They sponsored a resolu¬ agencies—not necessarily in search of conclusions, tion at San Francisco calling for such a body, but it
JUNE 1984 25 didn’t win approval at that time. We—and others— their health, etc. Our original concept of technical opposed an esoteric, academic body, but we saw merit assistance was fairly narrowly focused on know-how in an organization that would get into communica¬ and again excluded equipment procurement. We tions, science, and other tangible issues. It wasn’t thought that by building skills, you would create easy to merge these divergent concepts, and the com¬ demand, which would automatically induce the sup¬ promise that became UNESCO was an ambiguous ply and the capital to pay for it. Gradually, we learned organization with educational, scientific, and cultural that you can’t teach a farmer to operate a plow unless functions. he has a plow, and that once he grows a crop, he still has to get it to market. That kind of pressure ulti¬ When did technical assistance first come into the mately translated into an urge for something like the United Nations? Special Fund, which financed pre-investment studies, Technical assistance was one of the functions fi¬ training institutes—and equipment. All that went nanced by the regular budget of WHO from the time beyond the advice, training, seminars, fellowships, it first came into being, and when the other special¬ and studies that EPTA provided. The Special Fund ized agencies saw what the WHO was doing, they “pre-investment” studies were intended to convert a wanted to follow suit. But Hernan Santa Cruz of Chile dream idea into a tangible project the World Bank or first introduced the concept of technical assistance in private enterprise might support—to develop an eco¬ the United Nations itself, at the third session of ECO- nomic rationale for hydroelectric power, for instance. SOC, in 1948. He proposed that the U.N. should But the World Bank rarely relied much on these provide technical assistance to countries that request studies—it usually did its own. it, with resources financed from the regular U.N. budget. We opposed that, because we were paying What led to the United Nations Development over a third of the U.N. budget. We mustered Program? enough support to defeat his original proposal in ECO- EPTA was dying on the vine by 1961, as the Special SOC, but he then re-introduced the same concept in Fund was growing rapidly, so it didn’t make sense to the General Assembly, and it carried. In the begin¬ keep them as separate operations. We decided they ning, this was peanuts, in terms of cost, and had little should complement each other. Merging them would impact, but it was an important precedent. This was bring administrative savings and make it easier to only advice, training, and fellowships, without any mesh their operations. We also felt it would be easier equipment to go with it: the United Nations would to get one appropriation through Congress than send out experts in public administration, for exam¬ two—and meanwhile a proposal came out of Congress ple, to offer advice to government agencies. in 1961 to create a U.N. Development Authority. So we proposed in ECOSOC that an “Ad Hoc Committee What do you recall about the origins of the U.N. of Eight”—involving experts from eight countries— Expanded Program of Technical Assistance? should study all this. But again, the specialized agen¬ This hit us as a bolt out the blue, with “Point cies bitterly fought our merger proposal, fearing a Four” of President Truman’s inaugural address injan- strong central authority in the hands of the UNDP uary 1949- The president suggested in that speech administrator would threaten their autonomy—and that the United States should funnel some technical they succeeded in paring down our original proposals. assistance through the United Nations, in addition to that which would be administered bilaterally. I re¬ Has UNDP worked out as you hoped it would? member coming into the office the morning after that Well, I think we had unreal expectations: we address to find everybody asking: “How are we going thought we could control the specialized agencies to do this through the United Nations? What does it through the purse strings and a strong UNDP execu¬ mean? How will we introduce this?” tive. We also hoped a single U.N. resident represen¬ tative in each host country could forge a cooperating How did that get into Truman’s speech? team of the specialized agency representatives, so they I don’t know. Walter Lippmann claimed he plant¬ would all pull together in developing a good and ed the essential idea of technical assistance there. cohesive U.N. country program. We saw the resident Some say Francis Russell, who headed State Depart¬ representative as the supreme representative of the ment Public Information, threw in the words “Unit¬ U.N., with representatives of the specialized agencies ed Nations.” He had been at the San Francisco confer¬ serving under him as a sort of cabinet. This worked ence, and he worked closely with those of us sometimes, when there was a strong U.N. resident concerned with U.N. programs. But nobody had representative—and we found that up to half of them thought it through in advance. Eventually we decided really were first class. But the rest were anywhere that the technical assistance going to the U.N. should from mediocre to no good at all. And the specialized be channeled through the specialized agencies, and agencies all continued to push their own special pro¬ we set up a Technical Assistance Board composed of grams, supported by their own constituencies within representatives of the specialized agencies, under the each government. Unfortunately, the World Bank overall direction of ECOSOC, to oversee the program. representatives in particular normally refused to serve as real members of the U.N. team. UNDP did improve What did EPTA end up doing? coordination in the U.N. system, but not as much as EPTA was designed to show people in developing we hoped. Certainly the resident representative con¬ countries through technical assistance how to increase cept has been a good one. This has developed into a their production, build their infrastructure, improve career system, through which individuals rise up the
26 FOREIGN SERVICE JOURNAL ladder with frequent interactions between UNDP and ity for UNCTAD is fragmented, with different offices the specialized agencies. concerned with different limited aspects of its work, and those nominally responsible overall for the confer¬ What impact has UNDP had on Third World de¬ ence normally don’t know that much about its specific velopment? programs and activities. So as a consequence, theU.S. Oh, a lot more than it gets credit for. The world’s a government rarely stops to think about UNCTAD as an better place as a result of UNDP: more people are alive institution. But as I see it, UNCTAD, having an in¬ and in better health, there's more literacy, more labor credibly broad range of responsibilities that overlap productivity, improved agriculture, less malnutri¬ those of other elements of the U.N. system, really tion, better child care, and more effective bureaucra¬ undermines ECOSOC. Kathleen Bell at an cies. Some of the African countries in particular have early U.N. confer¬ benefited enormously, and they realize it. A lot of this Looking back, what have been our major ence. "We opposed can’t be measured, but some of it can—we get more, achievements and failures in the economic and an esoteric, aca¬ dollar for dollar, by offering assistance through the social side of the United Nations? demic body but saw merit in an organi¬ United Nations than through bilateral aid programs, We established an international economic and so¬ zation that would because the money we contribute to UNDP is more cial network that has the potential to do much good. get into communi¬ than matched by contributions from other countries, We have the machinery, legislation, and precedents cations, science, including developing countries, and also because it is to do just about anything we want—but we no longer and other tangible more neutral politically. Recipient developing coun¬ have the desire, the will, nor the experts to utilize the issues. The compro¬ tries also pay more overhead costs for UNDP projects system in an imaginative way. We should also give a mise that became than they normally pay for bilateral projects. lot more attention to U.N. institutional issues at the UNESCO was an am¬ higher levels of the State Department and the U.S. biguous organiza¬ How did UNCTAD—the U.N. Conference on government as a whole. I think lack of U.S. policy tion with education¬ Trade and Development—come about? coordination in the international economic and social al, scientific, and cultural functions. ” Through the late 1940s, it was generally assumed area has been one of our greatest foreign policy fail¬ that an international trade organization would be es¬ ures. tablished as a specialized agency to deal with interna¬ tional trade, but it proved impossible to bring it into If you could write a memorandum, with full as¬ being. We and other developed countries refused surance that the secretary of state and the presi¬ through the 1950s to discuss international trade in dent would consider your recommendations... the United Nations—either in the General Assembly, I would note first of all the need for a career corps of or in ECOSOC—insisting that only the General Agree¬ State Department experts on the United Nations, and ment on Tariffs and Trade was competent to consider especially on U.N. economic and social operations— trade matters. But GATT had limited membership officers who would get to know the agencies, their that excluded many developing countries. Raul Pre- structures, functions, and cast of characters—things bisch, who then headed the U.N. Economic Commis¬ that are only familiar to those who work on these sion for Latin America, had pressed for some years for issues for some years. I would like to see a few junior a special U.N. conference on trade and development. officers work in the Bureau of International Organiza¬ In the early 1960s we finally agreed that such a con¬ tion Affairs, then at U.S. missions to the U.N. in ference should be convened in 1964, intending that it New York, Geneva, Paris, Bangkok, Santiago, or would be a once-and-for-all escape valve, and still Addis Ababa, for example, later seconded to one of hoping to keep general discussion of trade matters out the international secretariats for a brief period, and of the United Nations. Those of us who knew Pre- then returned to supervisory positions in the depart¬ bisch and the strong feelings of many developing ment. And lO should protect and support their ca¬ countries about these matters knew they would try to reers, as compared with those of area specialists based create a permanent institution. From the beginning, in the geographic bureaus. Most of those who special¬ we made a lot of obvious mistakes in UNCTAD. I wrote ized in this work in recent years did not prosper. We papers before and during its first conference arguing also need a special unit with more prestige than at that if the conference had to be a permanent body, it present to ensure that our approaches in the meetings should be a specialized agency. If it were, it would be of the different specialized agencies are consistent and easier to control its budget and operations—and we complementary, and not undercutting or overlapping needn’t have joined it, or we could pull out of it, if we each other. didn’t like the way it was operating. But as long as UNCTAD is an integral part of the United Nations, its Do you think those recommendations would be budget is part of the U.N. budget, and our assessed accepted in the foreseeable future? contribution to the U.N. automatically pays for it Not in the immediate future, because just as we too. But it was impossible to get decision-makers to oversold the U.N. at the beginning, we now tend to focus on these institutional issues. Incidentally, I undervalue it. But at some point I think—and I have discovered over the years that people like to hope—we may rediscover the potential in the U.N. "create” institutions, but they don't really like to use Charter, then the United States might once again take institutions others have created. a positive and creative approach to the United Na¬ tions. I think this would be possible if we put our Why is UNCTAD such a problem for us? minds to it, and once we recognize the importance of It’s a 10-ring circus, with all kinds of things hap¬ working within the international community toward pening simultaneously. The Washington responsibil¬ global economic development.
JUNE 1984 27 Photographs by Chip Beck BATTLE OVER LEBANON
The cause of the American failure in Lebanon can be found in the halls of Washington, where impulse and rhetoric dominated policymaking
ROY GUTMAN
SIX DAYS AFTER the Israeli army invaded Leba¬ ation of the repercussions. He himself admits that he non injune 1982, then Secretary of State Alex¬ didn't know what Israel's war aims were at the time of ander Haig sent a cable to the U.S. special his move. (He was in good company, for neither did envoy in Jerusalem. Haig, smarting over at¬ most of the Israeli government.) Yet, despite the tempts by White House aides to make policy without questionable basis of his policy, Haig succeeded in him, this time was making policy without them. The having it accepted. Reagan, Haig writes, was "dis¬ instructions to the envoy, Philip Habib, were to in¬ pleased with me for the unauthorized dispatch" of the form the Israeli cabinet of Haig's "strategic plan" that instructions to Habib but never disavowed them. In would “seize this great opportunity to make peace." fact, Reagan later used Haig's three goals as a base on It called for simultaneous withdrawal of Syrian, Israe¬ which to build U.S. policy. li, and Palestinian forces from Lebanon, re-establish- In the absense of a rational decision-making proc¬ ment of Lebanese sovereignty, and agreement on se¬ ess, personal rivalry came to be a major factor. It is cure arrangements for Israel's northern border. characteristic that Haig says his impulsive action This incident, recounted in the former secretary of came “after the contretemps with Clark,” referring to state's book Caveat, provides a good point of reference William Clark, then national security adviser. Haig for those interested in uncovering the reasons behind cites three instances in the war’s first week in which the U.S. failure in Lebanon. Within the government, Clark went behind his back to get Reagan to toughen recriminations have turned into something of a round the U.S. policy against Israel. Haig thwarted him robin: White House officials blame the Pentagon; each time. After a succession offeuds with other play¬ Pentagon officials blame the State Department; State ers, which culminated in Haig’s handing Reagan a officials blame Congress; and congressional leaders list of "ineptitudes,” the secretary himself fell victim blame the president. There is good reason for many of to these squabbles in June. these recriminations, but for the most part they are In the months that followed, other players made merely symptoms of a larger problem in the Reagan equally bold contributions to policy. As the dominant administration. role in policymaking shifted among the president’s Haig's unauthorized instruction, full of optimism men, there was little continuity. Indeed, individual about a situation not exactly under American control, whims had so much impact that the phases of U.S. typified many of the decisions that were to follow. It policy in Lebanon can be distinguished, if that is the had an unanticipated impact on three audiences. For right word, by which player had the most influence the world at large, the move established a strategic with Reagan at the time. When Haig left the scene, goal for U.S. policy that the United States did not Defense Secretary Caspar Weinberger fought to limit have the power to bring about, namely the expulsion the deployment of the Marines in a multinational of the Syrian presense from Lebanon. For the Israeli peace-keeping force. But after the massacre of Pales¬ government, it provided a made-in-U.S.A. rationale tinian refugees in the Sabra and Shatila camps, it was for events that until then had been unfolding accord¬ Reagan who acted impulsively by ordering the Ma¬ ing to the whim of Defense Minister Ariel Sharon. rines back without thinking through the goals of their And among the president's top aides in Washington, mission. George Shultz, who had by then replaced it affirmed a pattern of diffused responsibility on criti¬ Haig as secretary of state, injected himself into the Marine frees cal national security issues. Policy was not deter¬ scene early in 1983 svhen, against the advice of ex¬ American child mined after a careful consideration of the issues and perts in the region and in the Near Eastern Bureau, he from barbed wire options; it emerged out of impulsive statements and warmed up relations with Israel and then concluded during evacuation. uncoordinated actions. The first official who jumped the stillborn Lebanon-Israel withdrawal agreement. into the policy gap with a proposal gained control of After Shultz.failed, the impulse came from Robert that issue. Recent accounts from Israel leave no doubt McFarlane, who had replaced Habib as special envoy. that Haig’s statement was a “seat of the pants" initia¬ In September 198.3, McFarlane won the authority to tive based on wishful thinking rather than on a careful call in naval gunfire to support the beleaguered Leba¬ reading of the situation on the ground or consider- nese government. The Marine barracks were destroyed in a terrorist attack on October 23, killing 241 ser¬ Roy W. Gutman covers foreign affairs and defense for vicemen. But Reagan, listening to Shultz and McFar¬ Newsday in Washington. lane rather than Weinberger, insisted they stay in
28 FOREIGN SERVICE JOURNAL Beirut. In December, the impulse to change policy came from the joint chiefs of staff, who decided the force must be withdrawn. It retreated in haste and, by March, Syria once again was the dominant outside power in Lebanon. 1 •• •• Shultz and Weinberger are still battling over Leba¬ '•B- r{-;*«.•'* non, debating w'hat went wrong in the guise of the question on when it is proper to use force. Wein¬ berger fired the first salvo in December, when a com¬ mission of military experts he appointed charged that U.S. policy relied excessively on the use offorce rather than diplomacy. Shultz replied in an April speech that the problem was not diplomacy but the reluc¬ tance to use military force. Since then, Shultz has one- upped Weinberger in bureaucratic terms by winning Reagan’s approval of a policy of retaliation against terrorists. This was a rematch of last fall, when the this system have been compounded by Reagan’s refus¬ Smoke rises above administration, partly due to Weinberger's reserva¬ al to delegate authority so that someone can demand the capital city. The tions, did not retaliate for the terrorist bombing. well-constructed and faithfully executed policies. real battle over Furthermore, the president and many of his top Lebanon was not fought in Beirut but aides have failed to demonstrate good judgment in in the corridors of assessing events in Lebanon. Ultimately the failure of TO STEP BACK a little from the fray, this Washington. round-by-round account describes how im¬ U.S. policy in Lebanon cannot be extricated from the pulse and rivalry produced policy, but it failure of Israeli policy, which the administration, as does not explain why the president permit- Haig makes clear in his book, sought to build on. But ed this to happen. Debates that center on whether recent writings based on Israeli military sources show Shultz or Weinberger makes more sense on the use of that when the army entered Lebanon, the Israeli gov¬ force have been miscast. The lesson of Lebanon is that ernment had not thought through what it hoped to the foreign policy process is fundamentally flawed. accomplish or how. This was especially the case when And, this is so because, whatever the contribution of Sharon, acting without prior cabinet approval, or¬ his top aides to the muddle, the real problem is Rea¬ chestrated his second-front war with Syria. When one gan himself. understands that this lack of planning by the Israelis Reagan’s leadership in foreign policy has been in¬ was never taken into account by Haig and that Reagan consistent and largely rhetorical. Senior White House built his strategy on this foundation, it is easy to see aides acknowledge that the president never could why U.S. policy developed along contradictory lines, make up his mind on many key issues when his subor¬ seeking both to minimize the damage to U.S. inter¬ dinates were divided. These include deciding how ests caused by Israel’s invasion, while capitalizing on hard to come down on an admired ally when it acts the gains Sharon said were within his grasp. contrary to U.S. wishes and when and how to retaliate Haig’s action also typified the administration's lack for terrorist attacks. Just as his clear views on the of judgment in attempting to exploit situations not Soviet Union have given a certain predictability to completely under U.S. control by raising the stakes. U.S. policies in that area, his failure to master Mid¬ Instead of focusing on the immediate problem—the eastern questions has led to ambiguous, shifting poli¬ Israeli invasion—Haig established a goal of removing cies. Reagan’s vigorous public statements were under¬ all foreign forces, even though there was little reason stood by his own aides and many in Congress mainly to believe they would cooperate. In a similarly over- as rhetoric, not leadership. Abroad, Syria, Israel, and ambitious move, Reagan announced a major Mideast Lebanon could read what they wanted from these peace initiative in September. Israel, not consulted, messages and pursue policies suiting their own nar¬ rejected the Reagan plan outright. Sharon, citing the row interests. muddy roads during the Lebanon winter, said an Is¬ This lack of leadership has been compounded by raeli pull-out would not be practical until spring. Reagan’s failure to establish a decision-making struc¬ Reagan raised the stakes again in late September when ture that would help him make up his mind. Instead, he sent the Marines back into Beirut and announced he set up a system designed to achieve harmony they would not leave Lebanon until all foreign forces among rival aides. This Cabinet-style government had been withdrawn. Next, it was Shultz who rested may have worked well for him while governor of his and the United States’ prestige on a signed with¬ California, but it is unsuited for running Mideastern drawal accord that he brokered between Israel and policy, senior National Security Council and State Lebanon. But Israel conditioned its withdrawal on an Department aides say. Because the system aims to equivalent and simultaneous move by Syria. Today, achieve a consensus among subordinates through ne¬ Israeli and Syrian forces remain in Lebanon. But Da¬ gotiated compromises, the president is spared the vid Kimche, director general of the Israeli foreign hard choices among conflicting goals. But it also ministry, asserts that as soon as some security arrange¬ means that his aides look for the middle ground with¬ ments covering the northern border can be made with in the Cabinet rather than within the real world. This Lebanon’s new Syrian-dominated government, "we middle ground can shift without respect for the mer¬ shall get the hell out of there.” Whether or not Israel its or consistency of a particular policy. The failings of and Syria come to an agreement at this point, the
JUNE 1984 29 standing and influence of the United States in the Kimche, who was at the cabinet meeting when Habib region has already been damaged by the Reagan ad¬ presented his briefing, Haig developed the strategy ministration's penchant for setting goals that are not that Israel not withdraw its forces unless Syria did as within its power to achieve. well. It svas an American, not an Israeli, initiative, he says. Israel’s adoption of that position later came to bedevil every U.S. effort to secure unilateral Israeli THE RESULT OF these failures of leadership, withdrawal and would tie down the Marines in Leba¬ organization, and judgment has been a non for 18 months. Kimche says this policy “came muddled definition of U.S. interests and about by accident.” "Of course there should be a aims that subordinates have been unable to simultaneous withdrawal,” he recalls Habib as say¬ clarify or implement. This is particularly so since they ing. were not included in the decision-making process, Did Haig, in trying to ride the tiger, actually spur even at the working level. Foreign Service profession¬ it on? The day after Haig conveyed his plan, Sharon als found their knowledge, analytical skills, and judg¬ encircled Beirut without telling the cabinet of his ment largely bypassed when major decisions were scheme. Within the week he closed all exits, trapping made. Robert Dillon, the ambassador to Lebanon, has Syria’s 85th brigade and the 14,000 PLO guerrillas in complained that the embassy was completely shut out the city. Haig’s policy initiative certainly furnished of decisions during the period when McFarlane was Sharon with a convenient cover story. Since the U.S. special envoy. In the context of bureaucratic backbit¬ secretary of state had linked the withdrawal of Israeli ing created by Reagan, diplomats ready never had a forces with that of the Syrians and Palestinians, Shar¬ chance. on was able to justify his army's presence. Although When Haig made his June 1982 statement, re¬ he never adopted Haig’s statement as his primary sponsibility for foreign policymaking was so diffused goal, he did use it to further his own purposes. This that he was able to attach the United States to a policy leaves aside the whole question of whether Haig gave that was really understood by only one man- Ariel Sharon a green or yellow light to invade in the first Sharon. Because Haig never really understood Shar¬ place, which many in Israel and Washington are con¬ on's intent or the situation on the ground in Lebanon, vinced was the case. the goals he established for U.S. policy were totally unrealistic. It appears that Haig, like many others, believed TO END SHARON'S siege of Beirut and get the that Israel did not want a war with Syria, but only PLO out, Habib called for a multinational intended to clear Palestine Liberation Organization force. Because the Soviets and Syrians op¬ guerrillas out of a 25-mile zone. When the Israeli posed the use of U.N. forces it had to be army turned against Syrian positions in the Bekaa American-organized and led. Habib's proposal, al¬ valley, Haig w'as surprised. It is “still not clear," he though it carefully specified the purpose and terms of writes in Caveat. “what prompted this sudden Israeli the MNF, sparked a conflict in Washington that was attack, which changed the whole character of the resolved in a telling example of consensus decision¬ conflict.” He concludes airily that "this dramatic making. Throughout the crisis, the National Security widening of the war demonstrated once again the Council produced “half-decisions, every one a mish¬ truism that political leaders tend to be carried away by mash. Just like an Arab League meeting, the lowest the greatness of their responsibilities and the urgent common denominator prevailed," said a State Depart¬ nature of military advice once a conflict begins.” ment official dose to Lebanese policymaking. In fact, according to Richard Gabriel in his book This time it was Weinberger who dominated poli¬ Operation Peace for Galilee, Sharon provoked the war cymaking. He was vehemently opposed to a Marine with Syria deliberately. He did this without telling deployment; indeed, at one stage senior State Depart¬ his cabinet colleagues of his intent when he ordered ment officials jokingly offered to call for several hun¬ Israeli forces to outflank Syrian troops in the Bekaa dred volunteers from the Foreign Service. Habib and valley. This put the Syrian surface-to-air missiles State wanted the Marines to stay for a minimum of 30 within range of Israel artillery. When Damascus, days and a maximum of 60. Weinberger's view’, ex¬ faced with a rapidly deteriorating military situation, pressed in a recent interview, was that “Some of us reinforced its SAMs, Sharon went to Begin and won had some doubts as to whether that was a very proper his approval for a pre-emptive strike. Although this role for one of the major powers." Reagan settled the led to the the destruction of the SAMs and gave Israel dispute in a Solomonic manner by splitting the differ¬ The ambassador control of the air, the w'ar that ensued with Syria was ence. H is decision, a compromise between two poli¬ commutes home by not based on an agreed strategy relating aims and cies, was that the Marines svould stay a maximum of helicopter under means, according to Israelis interviewed by Gabriel. 30 days. Following Weinberger’s further interven¬ heavy guard. Israel never had a clear idea of how to take advantage tion, they left after 17 days. of its tactical gains because it had never decided on its Weinberger also thwarted Habib and his deputy, strategic goals. Morris Draper, when they agreed with the French Haig, too, was unsure of Israel’s objectives. But he MNF contingent that some of the 800 Marines should was certain Israel had defeated the Syrians and the be deployed along the Green line between East and FLO, and that the moment had come to move all West Beirut. Weinberger “insisted that they be only Syrian, Palestinian, and Israeli forces out of Lebanon. in the port, totally protected and that they not set one "1 was convinced that such a moment might never foot outside the fences," the State official said. "There come again if it was not seized.” According to was embarrassment,” said a source close to the negoti-
30 FOREIGN SERVICE JOURNAL I fill ators. “As Americans we wanted to able to say that we could take as much risk as the French.” The Marines left Beirut on September 10. Four days later. President-elect Bashir Gemayel was assas¬ sinated. Sharon sent the Israeli army into West Bei¬ rut, also bringing in Christian Phalange militiamen who proceeded to massacre more than 700 Palestinian civilians in refugee camps. In Washington, the reaction—and subsequent de¬ cision-making—was heavily emotional and tinged with guilt. French officials charged that the massacre would not have occurred had the MNF stayed lor the entire mandate period. Many U.S. officials believe that an MNF presence would have prevented Sharon's move. What followed, however, was an overreaction by the president. "Reagan virtually said: ‘I don't want to hear any objections,' and he didn't,” a State official and the Israel government backed him. The stalemate The U.S. embassy said. Weinberger this time was silent. It was the lasted for months. after the terrorist quintessence of policy based on public relations ges¬ Today, some NSC aides believe a far larger U.S. bombing. The fail¬ tures, not calculations of interests, purposes, and force would have been the answer. McFarlane present¬ ure of the U.S. peace initiative in means. Fundamental steps were not taken. Clark ed an option to create a ring of troops at least 15 miles Lebanon was be¬ failed to require the most basic preparations—posi¬ around Beirut to protect the city from outside artil¬ coming clear at the tion papers from around the government laying out lery. The plan was favored by Gemayel, but Habib same time that the consequences of the move. Neither Weinberger and Draper opposed such a force, and Shultz regarded more than 60 nor the joint chiefs of staff demanded a statement of the idea as "preposterously grandiose.” A State De¬ persons were terms under which the MNF might depart, a normal partment expert on Lebanon says that "it just might killed. prerequisite to deploying a peace-keeping force. In have worked. But, knowing what 1 know about inter¬ the months that followed, they would rue this over¬ agency fighting, I doubt it would be possible.” sight, for the deployment became purely political, As Habib and Draper devoted months of effort to with no military logic to it. getting a withdrawal agreement with Israel, Syria This lack of reflection on U.S. interests and goals regrouped its forces and recouped its losses. The nego¬ was a sample of things to come. Even before the tiators unwittingly added to their woes when Draper Marines landed again, Reagan vastly expanded their accepted Gemayei's suggestion and agreed to the idea mission by implying they would not leave until all of a back channel to Sharon through a Lebanese busi¬ foreign forces departed. "Yes, because 1 think that's nessman. Unbeknownst to them, Sharon used the going to come rapidly,” he told a press conference on envoy to negotiate what he later claimed was a draft September 28. Nor was this the only serious oversta¬ formal agreement with Gemayel. Sharon announced tement. In December, Deputy Secretary of State Ken¬ the deal in December 1982, confounding Habib, who neth Dam described stability in Lebanon as “vital to had brought along a U.S. plan for a quick, informal our security.” Israeli-Lebaneseaccord. But the Sharon-Gemayel deal Reagan had created expectations that could never fell through and it took more than a month to get the be fulfilled. Building on Haig's impulsive initiative, talks back on track. Reagan had linked the removal of possibly 80,000 foreign troops—half of them Syrian—to the presence of 4000 U.S., French, and Italian troops. Reagan BY THE FIRST quarter of 1983 administration never disavowed his remarks nor did his aides; clearly policy was at a dead end and began to vacil¬ no one thought them through. But the United States' late wildly. Late in January, White House friends in the Mideast would hold Reagan account¬ officials warned that a “bruising showdown” able for his failure to deliver what they took as a was pending with Israel. But within a month, Shultz promise. Reagan's statement also gave Amin Ge¬ shifted to a policy of accommodation. “The word mayel, who succeeded his brother, an excuse to insist went out around the building: ‘let no light come that Lebanon’s top priority was removal of all foreign between us and the Israelis,' ” a State Department forces, not reconciliation among the factions whose aide said. Shultz had concluded by this time that an civil war had led to the intervention. Israel full of self-doubt (the Kahane report had severe¬ The U.S. goal was nothing less than to remake the ly chastised the government for the Sabra and Shatila local balance of power, which had long been dominat¬ massacres) did not serve U.S. interests; furthermore, ed by Syria. The means at hand was a peace-keeping the United States alone could not fill the power vacu¬ force, some tall rhetoric, and whatever leverage could um in the region. But Shultz’s wires crossed w’ith be derived from the presence of Israeli troops. Reagan Weinberger’s and those of many officials in State’s had gained a good deal of credit in the Arab world Bureau of Near Eastern Affairs and on the negotiating with his September plan, but the timing created what team who felt that firmness was needed. proved to be another impossible linkage. The princi¬ If there was still any doubt, the futility of adminis¬ pal Arab actor waiting in the wings, Jordan's King tration attempts to build a Mideast initiative on U.S. Hussein, would not move until Israel began with¬ policy in Lebanon became clear in April, when Hus¬ drawing from Lebanon. Sharon was not cooperating sein announced that he would not participate in the
JUNE 1984 31 September plan. Eight days later, a massive car-bomb forces from Beirut, creating a vacuum that invited an explosion devastated the U.S. embassy in Beirut. Six¬ attempt by Syrian-backed rebels to change the situa¬ ty-three people, including 17 Americans, were tion on the ground. killed. On April 20, in an article that drew rapt As the Marines at Beirut airport began to take attention in Washington (and helped win a Pulitzer casualties, the moment quickly passed when they prize), Karen Elliot House of the Wall Street Journal might have been removed without loss of face. But said that Reagan's September initiative was dead and there was no decision until it was too late, apparently Shultz’s failure to visit the Mideast raised doubts because the administration became gridlocked. about the administration’s commitment to its own McFarlane had endorsed a plan that originated with policies. On April 22, Reagan announced Shultz the Lebanese suggestion to move the force south along would make his first visit to the region. He left two the coast. But the administration was afraid of days later. prompting a congressional debate on the War Powers Habib urged Shultz not to come. NEA head Ni¬ Act. Today Shultz cites a congressional restriction cholas Veliotis warned that if he was coming out to passed the previous April that blocked such a rede¬ conclude the Israeli-Lebanese peace accord, he should ployment. White House officials say the military stay home because it would never fly with Syria. Most failed to come up with a good plan of its own. Mili¬ U.S. envoys in the region shared his view. Although tary officials say they wanted to get the Marines on the many foreign diplomats and U.S. officials regarded ships or replace them with army units. But the White the trip as an impulsive response to the Journal article, House wanted to have combat troops on the ground Shultz said he had already decided to go. “It was a without implying a long-term commitment. At¬ question of timing," he said in an interview. “It was a tempts to find a consensus thus led to indecision and decision that I felt was the right thing to do, just out heightened risk for the Marines. of my own vibes in the situation.” At this time, Jumblatt launched a military chal¬ Shultz got his deal, which called for joint with¬ lenge against Gemayel. In response, on September drawal of Israeli and Syrian troops and provided for an 11, the NSC authorized the calling in of naval gunfire Israeli security presence in southern Lebanon. But it support. Eight days later, over the vehement resis¬ was another example of trying to turn a situation not tance of the Marines' ground commander, McFarlane under U.S. control into diplomatic capital. The gains successfully pushed for the first U.S. military inter¬ were short term; the cost was loss of the initiative. vention in response to reports that a column of tanks The accord was signed on May 17; had the deal been was heading toward Souk El Gharb, a mountain vil¬ struck six months earlier, many diplomats think Syria lage that is the gateway to the Lebanese presidential might have acquiesced. Instead Syria rejected it and palace. At the time, the explanation for the firing was the dead letter became a symbol of Reagan’s mori¬ to protect Marines on the tarmac below. Officials bund policy in Lebanon and the Mideast. Habib felt acknowledge this really was a cover story mainly de¬ that a major policy review should have been held and signed to avoid triggering the War Powers Act. the accord dumped. But Israel opposed that course, The naval gunfire was followed by a cease-fire and Shultz made sticking with the stillborn agree¬ which, in a now all-too-familiar pattern, prompted ment the bottom line of U.S. policy. another bout of false confidence. That in turn was Since Habib’s role in negotiating the accord made destroyed by the bombing of the Marine compound. him unwelcome in Damascus, Reagan named McFar- Many officials now say the bombing destroyed U.S. lane as the new special envoy. McFarlane is described policy in Lebanon—an observation that begs the by all sides as a problem-solver by nature, and during question of whether there ever was a coherent U.S. his watch U.S. policy appears to have been a series of policy there. But the illusion of U.S. control and quick fixes. As a result, the United States became determination was allowed to linger. In a powerful involved militarily, the rupture within the adminis¬ speech on October 27, the president himself declared tration deepened, and dissatisfaction built within the Lebanon a vital interest. public, Congress, and the military leadership. In the same speech, Reagan also promised that McFarlane arrived in Lebanon on August 1. His “those who directed this atrocity must be dealt justice first action was his first mistake: he promised Ge- and they will be." But nothing happened. Again it mayel that direct U.S. contacts with Walid Jumblatt, was a case of internal gridlock. Reagan was reluctant the Druse leader, would cease. The decision was to have U.S. forces risk the deaths of innocent civil¬ quickly reversed after diplomats mounted a major ians. “He is a pussycat in many ways. He wants no campaign, but it contrasts with what White House bloodshed unless it is for a specific purpose,” said a Embassy depen¬ aides described as McFarlane's top priority: seeking high State Department official. A senior White House dents queue up dur¬ national reconciliation. aide claimed that U.S. units were “right down to the ing helicopter evac¬ Because Shultz had tied U.S. policy so firmly to the wire in a combined operation with the French" to uation. failed May accord, McFarlane now had little leverage retaliate against the bombing. But the French moved in Jerusalem and none in Damascus. Meanwhile Syr¬ alone after Weinberger and the joint chiefs said they ia, determined to thwart what remained of the agree¬ were not ready. This same official asserted that “the ment, was arming the opponents of Amin Gemayel president was ready,” but a senior State Department and exploiting his failure to reach an accommodation official said he was not. Today, eight months later, with the Moslem majority. As Syria grew more mili¬ only Weinberger defends the failure to retaliate tant, Israel lost its will to influence the military and against Syria. “There was no public support at all for political situation. All McFarlane could do was gain a anything remotely resembling a war against the Syr¬ few delays before Israel unilaterally withdrew its ians," he says.
32 FOREIGN SERVICE JOURNAL WHAT FINALLY BROKE the policy pa¬ ralysis was rebellion, this time from a new quarter, the joint chiefs. Wein¬ berger had long favored redeploying the Marines, but the chairman of the joint chiefs, General John Vessey, had remained a loyal backer of Reagan’s policies. The incident that changed his mind was the downing of two Navy planes in Decem¬ ber. A short time later, the Long Commission, named by Weinberger to investigate the Marine compound bombing, issued a report that questioned the entire basis and conduct of U.S. policy in Lebanon. Con¬ gress was in recess, but the two events produced a firestorm on Capitol Hill when it returned early in January. With congressional support eroding fast, Reagan on January 26 approved a redeployment plan that exemplified his governing style of splitting the differ¬ ence between diametrically opposed policy goals. humiliation at Suez. But that evaluation may not A good-bye hug as Weinberger and the chiefs wanted the troops out. happen. Unlike, Britain, where it is established prac¬ dependents leave Shultz's goal was to stay. The compromise approved tice whenever policy fails to hold inquests and publish Beirut. Shortly by Reagan was a phased withdrawal running until the results, in this country most responsible offi¬ after, the Marines June. Although labeled a redeployment, the plan cials—including those charged with oversight, that is began their rede¬ ployment to ships would require a greater U.S. military involvement, Congress—want mainly to put the entire episode be¬ offshore. especially use of naval gunfire, to bolster the Lebanese hind them. If Vietnam and Iran are any guideposts, army. To avert complaints that this would violate the the only postmortems on Lebanon will be in the press, War Powers Act, the announcement would state that which lacks the access to the cable traffic and internal the firing was to defend U.S. personnel in Beirut from documents needed to reach a fair and sound judg¬ outside shelling. But the joint chiefs resisted trans- ment. Therefore, any assertions on the lessons of miting the orders authorizing naval gunfire. McFar- Lebanon are necessarily tentative. lane, now national security adviser, heard of this and With that caveat in mind, one obvious lesson is devised a novel manuever. He went to the chiefs and that the practice of allowing rhetoric and impulse to insisted they put specific military instructions for fir¬ dominate the decision-making process adds to the ing on paper. He then took this paper to Reagan, who chances that policy will end in disaster or at least in signed it, and the plan finally fell into place. the perception of disaster. To cite an example, stabil¬ By February 7, however, the day of the big an¬ ity in Lebanon is a highly desirable policy goal, but nouncement, the Lebanese army had lost control of the fact that the republic has survived this setback West Beirut. Shultz and Donald Rumsfeld, the new proves Lebanon was never the vital interest it was special envoy, urged McFarlane to cancel the an¬ declared to be. nouncement, but since Pentagon officials had already Second, politicians should weigh the counsel of tipped off the television networks that an announce¬ area specialists before making such decisions. By do¬ ment was impending, they went ahead. The next day, ing so, they might have avoided making the misjudg- by pre-arranged plan, U.S. ships unleashed an enor¬ ment of attempting to build a Mideast initiative on mous barrage, including 300 16-inch rounds from the shaky basis of U.S. Lebanon policy. They may also the battleship New Jersey. To this date, the Navy has have realized the need to consult an ally—in this case not revealed the results. The State Department also Israel—when devising a plan that vitally affected it. stuck to its pre-arranged redeployment plan, which Third, there is no substitute for a deliberated strat¬ by now made equally little sense. The premise of the egy. The tragedy of Lebanon is that hundreds of plan, an orderly handover, disappeared when the American and other lives were sacrificed in an ill- Shiites took over West Beirut the previous weekend. considered attempt to shift the local strategic balance. Nevertheless Dam told House Republicans that the If, before it had been decided upon, this aim had been Marines would remain at the airport until June. debated within the administration, Congress, and the The end of the U.S. military presence in Lebanon country, it would have become clear that the United came swiftly, and was as disorderly as the policy had States would not commit itself enough to achieve it. been throughout. Day by day the redeployment plan Finally, and tying all these points together, the was advanced, with Weinberger usually the first to president should reconsider his attachment to Cabinet disclose changes publicly. “Our position was we style decision-making with its emphasis on consen¬ shouldn’t depart in unseemly haste. The chiefs were sus. In the view of a senior White House official, “If desperate to get them out. 1 can’t blame them,” said a there is a lesson to be learned from Lebanon, it is that State Department official. Finally, Gemayel abrogat¬ Cabinet government is great for some things, but on ed the treaty with Israel, the Marines boarded their vital issues, such as the Mideast...a stronger central ships by February 26, and a month later Reagan dis¬ authority might be more useful.” Judging from the solved the MNF. lack of thought and diffused responsibility still appar¬ The experience in Lebanon should provide “no end ent in other foreign policy areas, this message has yet of a lesson,” to recall the famous study of the British to get across. G
JUNE 1984 1 had been told in Washington about relations that he knew of and no family How the American consul congressmen in general, 1 opted for the members in Brazil. He had never known latter. his father. He worked sometimes, he made the acquaintance It was 1943 and Brazil was preparing said, on the docks in Belem unloading to send troops to fight with the allies in cargo from the river boats. As a child in of all the World War II. Consequently, I found Trinidad, he had worked as a house boy the chief of police to be very pro-Ameri¬ for a family of American missionaries. prostitutes in town can. The chief told me that Mr. McDou¬ They had taught him to play the organ, gal was a frequent inmate of his jail and and now he sometimes earned a few cru¬ FRED GODSEY that he had probably been in the Ama¬ zeiros playing on Sundays at the Rever¬ zon for some fifteen or twenty years. His end Lunsford’s small missionary church nationality was unknown. He had no in Belem. He had also worked for a time SOMETHING IN THE BACK of my personal documents but was presumed to as a sweeper in the bordello of Madame mind warned me not to open the be a native of Trinidad who had jumped Ze Ze in the red light district, but he envelope. But there were other ship in Belem. He was not really a was fired when the madame caught him considerations: Consul McLaugh¬ criminal, the chief assured me, but was stealing the raw onions the girls kept be¬ lin himself had placed it on my desk, considerably addicted to cachaca. the lo¬ hind their curtains to ward off disease. and after all it was only my first post in cal rum. It seems that, when in his cups, “Consul, sah, you remove me this jail the Foreign Service. Belem do Para, Bra¬ Mr. McDougal would position himself at and get me USA passport, and I going zil, was the post and, as my beautifully the intersection of two of the busiest to USA and get me fine job. Make lots engraved visiting cards proclaimed, I was streets in town and begin preaching a money!” a vice consul of the United States of sermon while standing on a wooden box. After making it dear, or so I thought, America. What this actually meant was It was one of these sermons which had to McDougal that I really couldn't help that the buck stopped with me—on its led to his latest incarceration. him unless we could document his claim way down. "Of course you will appreciate,” said to American citizenship, I slipped him a The envelope was dirty and grease- the chief, “that we really can't permit few cruzeiros, returned to the consulate, stained. It had been left with the night such conduct, even though O Senhor and wrote the State Department to check watchman at the consulate. It was ad¬ McDougal usually gives a part of his ser¬ further into his citizenship claim. dressed, with pencil in an unsteady mon in English, which, naturally, the hand, to "Consul Sir, USA." On the people on the street cannot understand. back was written, “From Simon Bolivar He also creates a traffic hazard." A I.THOUGH I REALIZED that there McDougal—In Jail.” A policeman took me to a corner ceil /\ was a very slim chance that he I opened ir. The message therein, for an interview with Mr. McDougal, M • was an American citizen, his scrawled on a piece of brown paper bag, who was reclining on a straw mattress, ■X. sorrowful plight and snaggle- was brief and to the point. “Consul, Sir. obviously recovering from a monumental toothed grin aroused my youthful sym¬ I be American Citizen. I be in jail and binge. He was a lean, middle-aged black pathy. Since he said that he had worked not my fault. You please, sir, come re¬ man, dressed only in a pair of patched for the Reverend Lunsford, I decided to move me this place." trousers. He wore no shirt and no shoes, visit the minister, whom I had previous¬ I checked the consular records and which was not unusual for laborers in the ly met at the consulate, and make fur¬ found nothing regarding McDougal. tropical heat of Belem. He was fluent in ther inquiries. What to do? As with most things in life, Portuguese and spoke the English of the The Reverend Lunsford, an elderly there were at least two possibilities: I West Indian islands, but understanding Protestant missionary, had been in the could throw the letter into the trash, him in either of these languages was Amazon valley for about thirty years and thereby risking the wrath of some vote- made difficult by the absence of his two had built with his own hands the small hungry congressman should it later be upper front teeth. church on the outskirts of Belem. The found that the man was an American, or McDougal, who saluted and insisted tiny church seated about 25 people— I could go down to the local jail and talk on standing at attention when he heard quite ample for his regular Sunday ser¬ to Mr. McDougal. Bearing in mind what that I was from the consulate, confirmed vice, which was usually given before that he had no personal documents and some twelve or fifteen people. His flock Fred Godsey is a frequent chronicler of unusu¬ no proof of American citizenship. He included the family of the British man¬ al but true occurences for the magazine. "THE said that his mother, before her death ager of the local power plant, the family JOURNAL" is a special section for Foreign back in Trinidad, had told him that he of the importer of a famous British gin, Service experiences and diplomatic history. All was a U.S. citizen. He had never been to and a few American residents. On occa¬ readers are invited to submit manuscripts of the United States; he didn’t know where sion, some members of the British and 1500 to 4000 words for consideration. his parents were born and had no living American consulates were present as
34 FOREIGN SERVICE JOURNAL day in the church, and I had to dismiss the poor chap. It almost broke my heart, since he had been with me for many years.” On that fateful holiday, every seat in the church was filled. “It was the best In Jail attendance we'd had all year, praise the Lord, and some of the town's greatest sinners were there," the reverend said. The sermon was to be longer than usual. The missionary was in good voice. The pedals were oiled, and McDougal was at his place behind the organ. All went well through the initial hymn singing, and Reverend Lunsford launched into his sermon. He soon reached the passage which called for the sound effects. He raised his eyes heaven¬ ward and shouted in stentorian tones: "And 1 heard a voice from heaven, as the voice of a great thunder ” Here he raised both arms high into the air, which was McDougal s cue to work the organ bellows forcefully with both feet and to pounce on the bass pedals to rattle the church walls with thunder. But from McDougal's corner came not a sound. The reverend paused, arms still raised to the heavens, and peered anxiously over his shoulder at the organ. Still no sound. He repeated the passage, louder this time, and frantically pumped both arms in the air while glaring at the organ. There was a deathly silence. Then sud¬ denly from behind the organ came a very loud belch, followed immediately by a fervent "Amen" from the same source. “Naturally, 1 could not possibly keep the poor fellow in the job after such a humiliating performance," the reverend said.
TWO DAYS LATKR, McDougal came to see me in the consul¬ ate. The police chief had, in deference to my visit, released him—1 later learned that he had told the well. 1 found Lunsford in his church in the innards of the organ. The reverend chief that I had promised him a job. He making some repairs to his antiquated knew about the bottle, and McDougal stood at attention before my desk and sa¬ foot-bellows organ, which stood on a was aware that he knew. But, according luted. He was still dressed in his patched small platform in the corner behind his to the minister, it was a delicate subject trousers, but this time he was wearing a pulpit. which was never discussed between pajama top and one shoe. He explained “Ah yes. Poor McDougal,” the minis¬ them, and McDougal was very careful that according to the new decree issued ter said, shaking his head sadly. "The never to be seen drinking or depositing a by Governor Barata, no one could ride best organist I ever had. Didn’t read mu¬ fresh bottle in the instrument. Lunsford, the local trolley cars without wearing a sic, of course, but he knew all of the old although thoroughly disapproving of jacket and shoes. The pajama top quali¬ hymns, and he was very good with the strong drink, had, over the span of years, fied as a jacket, and since the decree sound effects which I use in most of my decided that in McDougal's case a few failed to specify how many shoes, the sermons." drops did perhaps improve the sound ef¬ shoe, which he had borrowed for the day McDougal was especially effective on fects. from a friend, placed him safely within certain occasions when he had imbibed a “But, alas,” the reverend said, almost the limits of the law. The pajama top, bit too liberally from the bottle of ca- in tears and wringing his hands, “a most he claimed, was his own. chaca which he kept hidden somewhere dreadful thing happened last Easter Sun¬ “Consul, sah, you know I be Ameri-
JUNE 1984 35 can. You be American. So I think maybe I was walking back to the consulate preferably as far away from Belem as pos¬ you help me find good job until my through the center of town, when I saw sible. The chief tried to make the offer passport, she come from America. May¬ a small crowd gathered at the intersec¬ sound like a great favor on his part, but be, consul, sah, you also lend me ten tion of two of the busiest streets. As I 1 heard a distinct sigh of supreme happi¬ dollah. I pay back soon 1 get good job.” neared the perimeter of the gathering, I ness when, like a fool, I agreed. Truth to tell, I didn’t have ten dol¬ suddenly heard a shout in English. "And McDougal stood at rigid attention be¬ lars, but I gave him a few more cruzeiros the Lawd, he say, ‘Adam!' Adam,’ he fore my desk and saluted. “Consul, sah, and promised to speak with an exporter say, Sah!’ ” Two days later, I found an¬ that job on docks, she no good for me. friend about a job. As it so happened, other grimy envelope on my desk. On You please speak to Reverend Lunsford my friend, Jose Levy, did have work for the back was written, "From Simon Bo¬ that he take me back full time. I not him, and in a few days McDougal was livar McDougal—In Jail. ” take rum anymore. I learned me lesson unloading hides on the docks. I con¬ If the gods were not smiling on me now.” gratulated myself on a deed well done. that day, at least they were not frown¬ So it came to pass that McDougal, At the end of the month 1 went down ing, because this time I did not have to through my intervention, was again em¬ to the docks to get some information for visit the jail. The police chief telephoned ployed by the minister. He had promised a report to the department regarding raw me and offered to release McDougal it I on the grave of his dead mother to forgo rubber shipments. It was nearing noon as would simply try to find him a job— the demon rum. He was not only to play
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36 FOREIGN SERVICE JOURNAL the organ on Sundays in Belem but also for two months, and I again congratulat¬ “There are some persons waiting to see to accompany the reverend on his mis¬ ed myself that all was going well. you in your office,” she said, accenting sionary trips up the Amazon. The minis¬ Shortly thereafter, on a Monday morn¬ the word with revulsion. “And when ter agreed that it would be un-Christian ing, I arrived at the consulate to begin you've finished, the consul wants to talk of him, praise the Lord, not to give the my daily routine. I immediately noticed with you.” poor chap another chance. Besides, that I was greeted only by cold stares All I can say is that 1 was completely McDougal was the best organist in the from the female clerks, and the male em¬ unprepared for the scene awaiting me. area. ployees could barely contain their laugh¬ There, seated around my desk, were four The department finally replied that ter as they said good morning. Finally, of the most well known madames from McDougal was not a citizen and there¬ Mrs. Wilkins, a dignified American who Belem’s red light district. Moreover, fore not entitled to the protection of the was secretary to the consul, intercepted they had asked for me by name and had U.S. government. 1 didn't bother to in¬ me in the hall. Drawing herself up to refused to speak to anyone else. They form him of the bad news immediately. her full height, she looked at me as if I were dressed in ankle-length red-and- He had been back working for Lunsford were some revolting insect. blue silk dresses and wore heavy rouge.
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JUNE 1984 37 There could be no mistaking their pro¬ night. Surely the police have already through a small opening in a back room fession. been in touch with you about it.” and got onto the roof, followed by five Realizing that my days in the Foreign I was dumbfounded. "No, dear ladies, or six policemen. The houses in the dis¬ Service were probably drawing to a close, 1 have not heard from the police. Could trict were built of sun-dried brick and I decided to make the best of the situa¬ you perhaps be a bit more specific?” stucco. They were set wall to wall and tion. 1 bowed from the waist, "Distin¬ "Well,” Madame Celestina continued, had slanting tile roofs composed of red guished ladies! To what do 1 owe the "around midnight your employee, O clay tile, each connected to a neighbor¬ honor of your visit?" Senhor McDougal, who is also an Ameri¬ ing one of the same fragile material. "O Senhor Consul,” they all began at can citizen, came into my house in a During the chase across the roof tops, once. My office door was slightly ajar, very drunken condition. Later, when parts of the roofs of four houses slid off and 1 detected an unusually large gather¬ asked to pay, he smashed the large mir¬ onto the street. ing ot my male colleagues at the water ror in my salon with a beer bottle ” McDougal was apprehended and taken cooler in the hall. "It is about the dis¬ According to Madam Ze Ze, it was away by the police. But the early light of graceful actions of your employee," Mad¬ after the police were called that the real dawn revealed a mass of broken tiles in am Ondina said. "And the great damage damages occurred. It seems that when a the street along practically the entire he has caused to our houses,” Madam Ze truck filled with policemen arrived to ar¬ length of one of the red light district’s Ze added. "It happened last Saturday rest McDougal, he managed to climb main thoroughfares.
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38 FOREIGN SERVICE JOURNAL “It was not only my roof, O Senhor HONORABLE MENTIONS consul,” lamented Madame Ondina through her tears, "but a piece of the Linda E. Garufi roof fell upon my new record player and Neal D. Goldman broke my best record. It was La Paloma Brian J. Lubkeman Brienne B. Merritt by Miss Lily Pons—Miss Pons is Ameri¬ PEOPLE Carolyn K. Montgomery can, no? It is very necessary for my busi¬ Monica R. Morse ness that I have another record by Miss Dane F. Smith III Pons!” McDougal had obviously spread the word throughout the district that not Deaths only was he an American citizen, but 25 students win that he also was an employee of the 1984 AFSA/AAFSW American consulate and working directly Merit Awards DENNIS W. KEOGH, a Foreign Service offi¬ under my supervision. Thus I was the cer heading the U.S. mission to monitor man holding the purse for damage pay¬ Twenty-five graduating high school stu¬ the disengagement of armed forces along ments. dents have been named recipients of the Namibian-Angolan border, was killed The madames were incredulous when I AFSA/AAFSW Merit Award scholarships April 15 when a bomb exploded at a ser¬ told them the facts about McDougal’s for 1984, AFSA Committee on Education vice station where he had stopped to buy claims, but they finally left the consulate Chairman Claude G. Ross has announced. gasoline in Oshakati, Namibia. American only to be replaced in the afternoon by This year the awards for academic excel¬ military aide Kenneth Crabtree and a civil¬ one O Senhor Osvaldo Fonseca and his lence and outstanding leadership are given ian were also killed. Keogh was 44. lawyer. Fonseca averred, in a document in memory of Clarke Winship Slade, edu¬ The son of a career diplomat, Keogh drawn up by his attorney, that while in cator and long-time friend and adviser to attended high school in Iran. After gradu¬ the act of relieving himself against the the scholarship programs for Foreign Ser¬ ating from Wheeling College in West Vir¬ outside wall of the Waldorf Club in the vice juniors. Funds for the awards are pro¬ ginia, he served three years as an officer in district, that he had, suddenly and with¬ vided jointly from the AAFSW Bookfair the Marine Corps. An expert on southern out prior warning, been struck on the and the AFSA Scholarship Fund. Africa, Keogh had returned to Washing¬ head, neck, and other parts of the body The winners were chosen by four review ton in September following several assign¬ from above by several pieces of falling panels consisting of 24 volunteers from ments in Africa. He returned to Africa in tiles—thereby rendering him sick, sore, State, AID, USIA, AAFSW, and the re¬ March on a 30-day assignment. lame, and disordered. O Senhor Fonseca tired Foreign Service community. The As evidenced by outpourings of sympa¬ asked for one thousand dollars. He also award amount is $500, and this year the thy at various memorial events, Keogh was left the consulate in a livid rage when number of recipients was raised from the an extremely popular Foreign Service offi¬ confronted with the information that previous total of 22. cer. At the annual dedication ceremony on McDougal was neither American nor em¬ The winners and honorable mentions Foreign Service Day for the Memorial ployee, and that we would not pay. are listed below. The September JOURNAL Plaque maintained by AFSA in the Diplo¬ will include pictures and brief biographies matic Lobby honoring Americans in diplo¬ of these talented students. Congratula¬ matic missions who die "under heroic or NEVER SAW McDougal again, but tions! tragic circumstances,” Secretary of State his legacy remained to haunt me WINNERS George Shultz presented the Secretary's throughout my remaining days in Award posthumously to Keogh’s daughter Belem. It was a rare day when I Douglas Chang Molly. The award is given “in recognition was not greeted on the streets profusely, Robert S. Chase of sacrifice of personal health—including and by name, by one or more of Brazil’s Michael C. Friedman loss of life—in performance of duty.” most notorious madames. Unfortunately, Susanne A. Hauger He is survived by his wife, the former Maria M. Isaacs this sometimes happened when I was ac¬ Susan Garner; twin daughters, Molly and companied by some visiting dignitary. I Darrell M. Kienzle Jonathan D. Kulick Kate; a son, Miles; and a brother, Hugh, fear my friends spake evil of me in the all of Richmond, Virginia; a sister, Pau¬ market place. Liesl C. Leach Indra A. Levy lette Yonker of Gallup, New Mexico; and Then came the wonderful day when I Kimberly A. Linton his parents, Mr. and Mrs. David J. Keogh, received notice of my transfer. After over John F. Moran of*Williamsburg, Virginia. two and a half years in Belem, I was be¬ Monique M. Morrissey ing sent to Budapest to help reopen the Claudia G. Nenno JOHN KENNETH EMMERSON, a retired For¬ consulate there after World War II. As I Donald J. Planty Jr. eign Service officer and specialist on Japan was clearing out my office, prior to pack¬ John H. Rogers and Northeast Asia, died March 24 at ing my bags, a messenger placed a soiled Julia L. Rogers Stanford University Hospital following a envelope on my desk. I immediately Michael C. Rubenstein stroke. He was 76. handed it to the secretary. Amy C. Russell Emmerson held degrees from the Sor- Mary A. Sarros “Miss Mello, my replacement will be bonne, Colorado College, and New York Michael T. Schwartz arriving from Washington in a few days. Stratton C. Strand University. He joined the Foreign Service Will you please see'that he gets this?” AlzadaJ. Tipton in 1935 and served in Japan before World On the back of the envelope was writ¬ Sarah L. Turrentine War II. After the war he returned to Japan ten, “From Simon Bolivar McDougal— Maria C. Williams as an adviser to General Douglas MacAr- In Jail.” O Alex B. Wright thur. During the Kennedy administration
JUNE 1984 39 he was appointed deputy to the ambassa¬ in Washington on March 13. He was 74 Survivors include his wife, Leila; two dor to Japan and ran the embassy for sever¬ years old. daughters, Mrs. Frederick S. Brown of al months in 1964 while the ambassador Wilson graduated from Haverford Col¬ Brunswick, Maine, and Martha Leroy was incapacitated. lege and Oxford University. He also stud¬ Wilson of Washington; and two grand¬ He left his last Foreign Service post as ied at the Geneva School of International children. deputy chief of mission in Tokyo in 1966. Studies in Switzerland. He joined the For¬ He then became diplomat in residence at eign Service in 1937 and his assignments BARBARA A. HUTCHISON, a Foreign Service Stanford University until his retirement in included Cairo, Teheran, Calcutta, Bei¬ officer in USIA, died of cancer in Te- 1968. From his retirement until the time rut, Jerusalem, Mexico, and London. questa, Florida, on March 22. She was 57. of his death he was a senior research fellow As consul general and minister to Jeru¬ A graduate of Vassar College, Hutchi¬ at the Hoover Institution. salem, Wilson received the Superior Hon¬ son joined USIA in 1953. She served at He is survived by his wife, Dorothy; a or Award for his service and reporting dur¬ posts in Chile, Cuba, Venezuela, Bolivia, daughter, Dorothy Louise Emmerson of ing the 1967 Six-Day War. He was the Guyana, and the Dominican Republic. New York City; a son, Donald Kenneth author of the book Jerusalem, Key to Peace, During her assignment as public affairs of¬ Emmerson of Madison, Wisconsin; a sis¬ which deals with his experiences there, ficer in the last post, she was kidnaped and ter, Theodora E. Sinden of Aurora, Illi¬ and another book entitled Decision on Pales¬ held for ransom by a guerrilla group but nois; and two grandchildren. tine. was later released unharmed. She received Wilson was a member of DACOR and the State Department’s Medal of Honor for EVAN MORRIS WILSON, a retired Foreign of the Board of Governors of the Middle heroism in 1974 as a result of the ordeal. Service officer, died of cancer at his home East Institute. In the two years prior to her death, she was
FOREIGN
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TAX COUNSELING on any problem. No FOR SALE BY OWNER: captivating one MOVING LOSS & DAMAGE CLAIMS: Pro¬ charge to AFSA members for telephone ad¬ bedroom duplex in charming, small build¬ fessional preparation and processing of claims vice. Bob Dussell (ex-FS), enrolled to tax ing, located on quiet tree-lined street in vi¬ for the recovery of money due from property practice by the Treasury Dept., 3601 N. brant ADAMS MORGAN/KALORAMA loss and damage when moved by the U.S. Fairfax Dr., Arlington, VA 22201. neighborhood of Washington, D.C.; in¬ government. NO UP-FRONT MONEY. Fee (703)841-0158. cludes w/w carpeting, washer/dryer, CAC, for this service is 10% of the amount recov¬ tract lighting, low condominium fee; ered. We get all estimates. Write or call and TAX PROBLEMS, returns and representa¬ $91,900; contact (202)483-0203 in even¬ ask for one of our agents. PERSONAL tion. T.R. McCartney (ex-FS) Enrolled ings; 1843 Mintwood Place, N.W. #110; PROPERTY CLAIMS, INC. 2000 Virginia Agent, and staff. Returns now completely Washington, D.C. 20009. Ave., McLean, VA 22101. (703)241-8787. computerized. Business Data Corp., P.O. Box 57256, Washington, DC 20037-0256. WE HAVE WONDERFUL VALUES in wa¬ (703)671-1040. INVESTMENT GUID¬ terfront property. Lovely historic homes here INVESTMENTS ANCE. in the Land of Pleasant Living on the Eastern Shore of Maryland; site of Michener’s Chesa¬ FINANCIAL PLANNING/PORTFOLIO peake. Wildfowl and fish abound. Contact MANAGEMENT: E.F. HUTTON & CO., Jackie Robbins (AID wife), sales associate, INC. G.Claude Villarreal, Account Execu¬ ACCOMMODATIONS WANTED Spedden and Associates, 213 Sunburst High¬ tive, 1825 Eye Street, NW, Suite 1000, way, Cambridge, MD 21613 or call Washington, DC 20006. (202)331-2528 or (301)228-2050, Sundays call (301)228- (1-800)368-5811. MATURE EXECUTIVE, former AID seeks 8222. immediate fully furnished, temporary sum¬ IRA PLANS, TAX-FREE INCOME, stock, mer rental, studio or 1-bedroom, or furnished etc. Ruth G. Adler, Certified Financial Plan¬ house 1-2 years rental, Maryland or NW DC ner, A.G. Edwards & Sons, Inc., Members location. Contact: Stan, (202)833-2505 day APARTMENT RENTALS New York Stock Exchange. 4801 Massachu¬ or (203)435-9379 weekends. Write PO Box setts Ave., N.W., Washington, DC 20016. 775, Salisbury, CN 06068. FARA APARTMENT RENTALS: Fully-fur¬ (202)364-1626. nished efficiency, 1 and 2 bedroom apart¬ WANTED: PLACE TO LIVE for former For¬ ments. One block from State Department. WANT TO REDUCE YOUR TAXES? eign Service wife. Housesit or reasonable Prices from $40-60 per day, plus tax. Call Mark Waldman, Ph.D., (ex-FS), Investment rent. Please write: Box F, Foreign Service (202)463-3910. Write FARA Housing, Rm. Adviser. Wealth Management Consultants. Journal, 2101 E St., NW, Washington, DC 2928, Dept, of State, Washington, DC 1731 Killarney Court, Vienna, VA 22180. 20037. 20520. (703)938-5912.
40 FOREIGN SERVICE JOURNAL director of the USIA reception center for Survivors include his wife, Mary Doyle Appointments international visitors in Honolulu. Tsinger of Washington; two daughters, Survivors include two brothers, J. Ross Gail Schrantz of Martinsburg, West Vir¬ WAYNE P. COOPER has been named a mem¬ Hutchison of Crystal River, Florida, and ginia, and Christine Garbett of Prattville, ber of the Advisory Council to the Friend¬ James A. Hutchison Jr. of Newark, Dela¬ Alabama; two sons, Andrew C. of Fairfax, ship Force of North Carolina. ware, and two sisters, Isabel Fulling of Virginia, and Stephen J. of Herndon, Vir¬ The Friendship force was creaced in the Tequesta, Georgia, and Louise Whitaker ginia; and his mother, Margaret E. late 1970s to promote international good¬ of Athens, Georgia. Tsinger of Washington. will between the people of the United States and the world. It supports a cultural JOSEPH G. TSINGER, a retired Foreign Ser¬ NANCY LOUISE NOACK, wife of David exchange program in order to foster better vice officer, died of cardiac arrest March 23 Noack, died on March 26 of cancer at Fair¬ business, industrial, and cultural relations. at Fairfax Hospital. He was 63. fax Hospital. She is survived by her hus¬ Cooper joins 16 other civic, business, A graduate of the Georgetown Univer¬ band, and also by her mother, Mary Juer- and community leaders as a member of the sity School of Foreign Service, Tsinger gens; three sons, Fred, Alan, and Andy advisory board. He is president of Arcon served in the Army during World War II Clay Whiddon; two daughters, Susan Manufacturing Inc. in Charlotte, North and was a civilian employe of the old War Gaile Noack and Karen Diane Noack; and Carolina. Arcon is active in Central and Department. He joined the Foreign Ser¬ two grandchildren. South America, northern Africa, the Mid¬ vice in 195 1 and served at posts in Peru, In lieu of flowers, donations in her east, the Far East, Mexico, and Asia. Coo¬ Paraguay, and Chile before his retirement memory may be sent to the American Can¬ per is also Honorary Mexican Consul for in 1970. cer Society. the State of North Carolina.
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JUNE 1984 41 Association News Foreign Service Day: four names added to memorial
Four new names of" Americans attached to diplomatic missions who were killed under "heroic or tragic circumstances” in the last year were unveiled at the dedica¬ tion of AFSA's Memorial Plaque on For¬ eign Sendee Day, May 7. AFSA Presi¬ dent Dennis K. Hays and Secretary Shultz spoke at the brief ceremony, dur¬ ing which Shultz read a message from President Reagan pledging "every effort to defend our diplomats by strengthen¬ ing security measures and enhancing our intelligence capabilities and, if neces¬ sary, by more active defensive measures. " "This past year we have witnessed a Added to the plaque this year were AID Standing continuation of acts of terrorism against Captain George K. Tsantes, who was the representatives of our country and killed in Athens in 1983; Foreign Sendee accuses agency especially against members of the For¬ Officer Leamon R. Hunt, who was assas¬ eign Service community," said Reagan. sinated in Rome earlier this year; and on languages Shultz added that "this department will Foreign Service Officer Dennis W. spare no effort for the safety of Foreign Keogh and Colonel Kenneth Crabtree, AID is "willfully backing away from the Service employees. Our Office of Security who were killed by a bomb in Namibia in letter and intent” of Section 700 of the is working all-out on enhancing the secu¬ April. Keogh’s family were the guests of Foreign Service Act, which provides for rity of our facilities around the world, the Association at the ceremony, where sharply increased emphasis on foreign and we are cooperating closely with Secretary Shultz gave the Secretary's language capability, AFSA’s AID Stand¬ friendly governments to track down and Award posthumously to Keogh, present¬ ing Committee has charged. “AID re¬ combat terrorism.” Hays noted that, ing it to his daughter Molly. cently promulgated regulations to water “For the Foreign Sendee, terrorism is not "The irony of the deaths of all these down the Language Proficiency Standard something abstract but something real, tireless workers for peace is a sad and required for tenuring," the committee very personal—and never is it more real terrible commentary on the irrational said. "Also eliminated was the require¬ than on an occasion such as this, where we forces with which peacemakers must con¬ ment that beginning last February, certi¬ mark the loss of friends and loved ones.” tend today,” concluded Shultz. fied proficiency in a foreign language will be required for consideration for the Senior Foreign Service.” USIA junior officers meet AFSA at lunch Originally, management had pro¬ posed these changes to AFSA along with a sharp curtailment of the language in¬ centive package, in particular step in¬ creases for proficiency, but AID Standing got the existing financial incentives package retained until the whole range of language incentive compensation could be reviewed. At the same time the com¬ mittee won agreement to expand the list of “AID Useful” languages. At that point the agency declared lan¬ guage-level items non-negotiable and implemented the proposals anyway. “This manifests a clear agency decision to For the first time, members of USIA’s junior officer class came by the Foreign Service Club earlier this spring to meet AFSA board members and staff and to learn about the de-emphasize foreign language train¬ Association’s professional activities on their behalf. ing,” the committee charged.
42 FOREIGN SERVICE JOURNAL tive issue affecting federal retirees awaits cember 1—will receive only one-half the Changes in resolution during the 98th Congress. COLA applicable to older retirees, survi¬ retirees’ COLA This has to do with the present provi¬ vors, and disability annuitants. sions for a reduced COLA for retirees who While the Senate has not yet acted on computation have not reached age 62. This matter is its version of the 1985 budget reconcili¬ being addressed in the budget reconcili¬ ation, the draft bill does not incorporate In April the Senate finally passed the ation process for fiscal year 1985. The this provision. The hope is that the final 1984 budget reconciliation bill that was House passed its version of a reconcili¬ Senate bill will not include this limita¬ enacted by the House last October. This ation bill in mid-April, providing that tion and that the House may agree to legislation postpones the cost-of-living non-disability federal civilian and mili¬ drop the measure when the differences adjustment for federal retirees from May tary retirees who have not yet attained between the chambers are resolved in 1 to December 1, as reflected in annuity age 62 by the effective dates of the COLAs conference. checks issued on the first of the following in fiscal year 1986 and 1987—i.e., by —ROBERT M. BEERS, months. The budgetary savings are esti¬ December 1, 1985, or the following De¬ Congressional Liaison mated to approximate $1.1 billion. Henceforth, COLAS will become effec¬ to take effect. The agreement constituted tive December 1 of each year, payable Judge rules a liberalization of past policy, allowing January 1, and they will be based upon on sale of employees to realize profits on the sale of the difference in the Consumer Price In¬ personal property as long as the property dex from the third quarter of the preced¬ personal property had been imported for the employee’s ing year compared with the third quarter bona fide personal use. of the year in which the COLA becomes An administrative law judge appointed The case was argued on AFSA’s behalf effective. Thus, the next COLA, payable by the Foreign Service Labor Relations by the general counsel of the FSLRB, January 1, 1985, will be calculated using Board has issued a ruling affirming the which had issued the charge. The judge the rise in the CPI from the third quarter authority of ambassadors to limit conver¬ ruled that the authority of ambassadors of 1983 to the third quarter of 1984. sion of local currency obtained from the to limit conversion of currency at embas¬ In making this calculation, the aver¬ sale of personal property by employees sy facilities predated both the agreement age of the CPIs for the three months in serving overseas. and the cable. The department was not each quarter will be used. Example: the The administrative proceeding result¬ obligated to consult with AFSA because actual CPIs for July, August, and Sep¬ ed from an unfair labor practice charge the cable did not represent a change in tember 1983 were 298.2, 299.5, and filed by AFSA against the Department of practice. The judge ruled that the cable 300.8. Adding these together and divid¬ State. AFSA charged that the depart¬ “merely alluded to existing ambassado¬ ing by three, we arrive at the average for ment’s April 15, 1983, cable to all diplo¬ rial discretion to control embassy conver¬ the quarter of 299.5. This is the new base matic and consular posts directing am¬ sion of local currency into U.S. dollars figure against which the average CPI for bassadors to impose limits on amounts of and suggested that ambassadors exercise July, August, and September of this year local currency converted into U.S. dol¬ their discretion as appropriate in coun¬ will be compared. lars at embassy facilities constituted a tries with parallel rates.’’ This postponement and change in the unilateral change in conditions of em¬ The general counsel of the FSLRB is COLA results in a loss in the inflation ployment. The cable had been distribut¬ planning to appeal this decision on adjustment for the period from Decem¬ ed two days before a negotiated agree¬ AFSA’s behalf. We will let you know the ber 1982, when the CPI was 292.0, and ment on the sale of personal property was results in a future issue. the new base of 299.5. This constitutes a rise of 7.5 points in the CPI, or a 2.6- percent increase. This loss is a one-time AFSA cites Eagleburger for service event but it will have the permanent ef¬ fect of reducing the base figure against which future COLAs will be appplied. To calculate the COLA adjustment now scheduled for payment in January 1985, we must wait until we can compute the average of the CPI readings for July through September of this year. Let’s as¬ sume that this figure turns out to be 310.0. The previous base figure is the actual CPI average for the corresponding quarter of 1983, which we have just not¬ ed was 299.5. Under our assumption of an average CPI for the third quarter of 1984 of 310.0, the CPI would have in¬ creased by 10.5 points, or 3.5 percent. AFSA State Constituency Representative Thomas Miller (right) presents a certificate of This increase would then be reflected in appreciation to retiring Undersecretary for Political Affairs Lawrence J. Eagleburger at the January 1985 annuity checks. ceremonies on the eighth floor in April. AFSA cited Eagleburger for “sustained excel¬ At this writing only one more legisla¬ lence in the performance of your many and varied duties. ”
JUNE 1984 43 From the Director’s Desk Enhancing Membership Communication
By LYNNE IGLITZIN, AFSA Executive Director
With this issue of the ASSOCIATION presentative on the Governing Board— We have exciting plans to continue to NEWS, I am pleased to initiate a regular will serve as coordinator of this column. expand the AFSA 60th Anniversary Lec¬ column to communicate directly with Ambassador King, himself retired, ture Series, a monthly talk on foreign the diverse membership of our Associ¬ hopes that the column will serve many affairs by a distinguished speaker during ation. I plan to keep you informed of functions: as a clearing-house for items a luncheon at the Foreign Service Club. some of AFSA's activities you may not submitted by the many retirees around Even though we realize this will primar¬ otherwise be aware of and to solicit your the country; as a suggestion box for ways ily be of interest to members in the met¬ comments and ideas about things we in which AFSA individuals and local ropolitan Washington area, we are look¬ are—and are not—doing. Please view groups might work in their communi¬ ing forward to a broader scope of this column as one way to encourage a ties, for instance with school or civic professional events to be held at the dub. dialogue about what your Association is groups that are interested in foreign af¬ If you have ideas for a good speaker up to. fairs; and as a forum for raising interests whom you would be willing to contact We are trying to pay increased atten¬ and questions that might be of interest to personally, please let us know. tion to the needs of our many retired the rest of the AFSA community. Such a We are exploring ways to enhance our members. Accordingly, beginning with column will only be as successful as you services to our members generally, and to the next issue we will be instituting an¬ make it. For it to work, we will need to our retired members in particular. This other regular feature, this one devoted to hear from you. Please send any ideas, column is just a beginning. Do write items by, about, and of interest to AFSA suggestions, and items for the column directly to me with any suggestions as to retirees. We are pleased to announce that directly to Spencer King, c/o AFSA, 2101 other things AFSA might do to broaden Spencer King—who is stepping down E Street N.W., Washington, D.C. the scope of member benefits. I shall do after years as a retired-constituency re¬ 20037. my best to respond personally.
Life and Love in the Foreign Service
Winners of the monthly LIFE AND LOVE contest receive a certificate for a free lunch for two at the Foreign Service Club, honorable mentions receive a certificate for a free carafe of wine. Send entries to:
LIFE AND LOVE #12 Contest deadline AFSA is July 31 2101 E Street N.W. Washington, D.C. 20037
Competition # 12
WINNER: “That’s right. As your career counselor, I hold, the assign¬ ments officer kicks, and you keep still. ” BOB FOUCHE, Washington
HONORABLE MENTION: “An early version of the Triad.’’ CHUCK WOOTON, Pittsburgh
44 FOREIGN SERVICE JOURNAL Overseas insurance ■ either replaces your household effects _ at today's prices or I it doesn't.
Actual Cash Value Current Replacement Cost Most overseas insurance policies cover your The American Foreign Service Association is household effects for their replacement cost less sponsoring a Package Insurance Program for AFSA depreciation. This means that your $500 stereo sys¬ members only. The AFSA program covers you for the tem purchased 5 years ago may have an actual cash replacement cost of household furniture and personal value of only $250 today. That’s what most overseas effects that are lost or destroyed. insurance policies (or the Claims Act) would pay if it This means that your $500 stereo system would were lost or destroyed—hardly enough to replace the be replaced with a similar system at today’s prices entire system at today’s prices. even though they may be higher than $500, subject only to the policy deductible of $50.00. Under the AFSA plan you can also add coverage for valuables or worldwide personal liability for you and your family. All with the assurance that you’ll get fast, fair claims service. And the rates are low. Basic property insurance costs only 750 per $100 of coverage. Give yourself some peace of mind before you > move overseas. Send for our free brochure to help / you determine how much insurance you need S and how much it will cost. Or call your AFSA y insurance specialist at:
The AFSA Desk, H^*****- The Hirshorn Company 14 East Highland Avenue Philadelphia, Pa. 19118 (215) CH2-8200.
yr Send me your free brochure / (with built-in application form) that S answers my questions about overseas insurance.
Name. S / Address
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As an active member of the diplomatic corps, you are eligible for Chrysler’s 1984 Diplomatic Purchase Program. Which Chryslen . _ mean;means, no matter where you are, you can get a big diplomatic discount on a new quality-built Chrysler-made car. And 1984 is one of Chrysler’s most exciting model years ever. The beautiful j Chrysler New Yorker is the most techno¬ ^ ^ logicalogically advanced luxury car we’ve ever means^ V . built.i Dodge Aries can suit just about A anyboanybody’s needs in 2-door, 4-door or station wagon models. Also offered, from the Chrysler line, are LeBaron, 5th Avenue, E Class and the all-new Chrysler Laser. Plymouth has1 Horizon and Reliant, and Dodge offers Omni, Aries and 600, and more. You can quality iorder any one of these fine cars overseas . and have it waiting for you when you arrive home. j For full details on these and other vehicles, as well as the Diplomatic Purchase Program, contact: In U.S.: Any Chrysler-Plymouth or Dodge dealer or the Diplomatic around i Sales Office, Chrysler Corpora¬ tion, P.O. Box 1688, Detroit, MI 48288. Phone (313) 956-0818. j TELEX 0235264 CHRYEXIMDET. Overseas: TELEX 961320 CHRY- NEWCAR Attn: Diplomatic Sales. ^ Or mail the postage-paid reply J the wail card enclosed in the magazine.
The New Chrysler Technology