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THE HIRSHORN COMPANY 8333 Germantown Avenue Philadelphia, Pennsylvania 19118 W] CHUBB 8c SON INC. CHUBB Insurance Underwriters American Foreign Service Association THOMAS D. BOYATT, President F. ALLEN HARRIS, Vice President EDWIN L. MARTIN, Second Vice President RICHARD H. MELTON, Secretary LOIS W. ROTH. Treasurer MARY ANN EPLEY & JOHN PATTERSON, AID Representatives FRANCINE BOWMAN, CHARLES T. CROSS, CHARLES O. HOFFMAN & RAYMOND F. SMITH, FOREIGN SERVICE JOURNAL State Representatives CARL GEBUHR, USIA Representative FEBRUARY 1974: Volume 51, No. 2 JAMES W. RIDDLEBERGER & WILLIAM 0. BOSWELL, Retired Representatives RICHARD L. WILLIAMSON, Counselor

Journal Editorial Board TERESITA C. SCHAFFER, Chairman RALPH S. SMITH, Vice Chairman FREDERICK QUINN JOEL M. WOLDMAN EDWARD M. COHEN ERIC GRIFFEL G. RICHARD MONSEN LAWRENCE B. LESSER

Staff GERALD BUSHNELL, Executive Director Who Is Your Father? 4 HELEN VOGEL, Committee Coordinator SALLY GROOMS ELOISE JORDAN, Scholarship Aide C. B. SANNER, Membership and Circulation The Nixon System: A Further Look 9 Foreign Service Educational Center I. M. DESTLER CLARKE SLADE, Director

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■ American Foreign Service Association, 1974. The Foreign Ser¬ vice Journal is published twelve times a year by the American Foreign Service Association. 2101 E Street, N.W., Washington D. C. 20037. Telephone (202) 338-4045

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Guest Editorial: The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, published twelve times a year by the American For¬ Memories of ‘‘Chip’’ Bohlen 2 eign Service Association, a non-profit organization. JOSEPH ALSOP Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. The Bookshelf 27 Membership in the American Foreign Service Association is open to the professionals in foreign affairs overseas or in Washington, as well as to persons having an active interest in, or close association with, foreign affairs. Membership dues are: Active Members—Dues range from $13 to $52 Letters to the Editor 35 annually depending upon income. Retired Active Members—Dues are $30 annually for members with incomes over $15,000; $15 annually for less than $15,000. Associate Members—Dues are $20 annually. For subscription to the JOURNAL, one year (12 issues); $6.00; two AFSA News 37 years, $10.00. For subscriptions going abroad, except Canada, add $1.00 annually for overseas postage. Articles appearing in this journal are abstracted and indexed in Historical Abstracts and/or America-. History and Life. Microfilm copies of current as well as of back issues of the FOREIGN Cover “The Four-Legged Flying Bumblebee Bat” SERVICE JOURNAL are available through the University Microfilm Li¬ by Becky Wolford brary Services, Ann Arbor, Michigan 48106 under a contract signed October 30, 1967. F5J GUEST EDTTDRIAL

Memories of “Chip” Bohlen

JOSEPH ALSOP

You make a lot of discoveries as you grow older, some without a trace of wishfulness. Remember, too, that the delightful, some painful and some odd. One that is both opinion Bohlen thereby formed of the Soviet system odd and painful is that reason does not matter very was then the very opposite of fashionable in many in¬ much when you lose someone you have greatly cared fluential quarters in this country. about. Here, of course, was the second lesson of Chip He or she may be ending the richest possible life in Bohlen’s public service. It must have been a great the most cruel agony. You may tell yourself, again and temptation for him, especially after Joseph Stalin be¬ again, that facing such agony after such a life, he or she came our ally, to shade his judgments a bit to suit the would be far better served by a quick end. fashionable mood. He was personally attacked for But then the end comes at last, and you discover that those judgments in TIME magazine, for instance. And, all your logic is now worth a pin. The loss is still a bit initially at least, there were also judgments that were like an actual amputation. And now it has been just like most unpalatable to President Roosevelt’s wartime that to lose one of my two or three oldest friends in this right hand, Harry L. Hopkins, that half-forgotten great city where 1 have lived for close to 40 years. man. Even so, the death of Charles E. Bohlen would not He did not shade his judgments, nonetheless. He require this kind of public comment, if his career and stuck to them; and as experience taught Hopkins more contribution did not teach a valuable public lesson. In¬ and more about Bohlen’s subject, Hopkins came to deed his service to the United States teaches a whole hold Bohlen in higher and ever higher regard. In sum, series of lessons, all of them highly relevant today. the second lesson of Bohlen’s great career is that it pays This is a time, for instance, when a good many to be courageous—if you just happen to have the guts to Americans are still being self-indulgently wishful about do it. the Soviet Union, and some others are recovering, with As to the third lesson, it concerns the value of abso¬ comical difficulty, from the after-effects of wishfulness. lute integrity. Everyone has heard the story of how Now modern Russia was “Chip” Bohlen’s subject. He Chip Bohlen refused President Kennedy’s invitation to chose this subject when he was a young man—which join the special policy group that got us through the always makes wishfulness a strong temptation. It was a Cuban missile crisis. Bohlen refused on the simple choice, as the event proved, that opened the road for ground that it would tip the Kremlin off that we knew one of the two or three most enviable careers in the too much, if he suddenly put off his expected departure history of American diplomacy. for the Paris embassy. I was there that evening, as it Furthermore—what very few people ever grasped happens. It was a chilling time, if one only knew what about Chip Bohlen—his whole working life was one was afoot. Yet the evening’s surface was so pleasing long love affair with Russia and with his subject. He not that the picture of it often comes back to me, who did only vastly admired and liked the Russian people. He not understand the quiet, easy-seeming Kennedy- also came perilously close to disliking any conversa¬ Bohlen colloquy. tion, except for conversation about his special subject. Later, the President looked back on the evening, In this last year, when he was a desperately ill man, made mellow and reminiscent by the outcome of the half the time tortured by his disease, he was not always missile crisis. Of Bohlen’s decision, he said something easy for a visitor to get through to, as you might say. So fairly memorable, too: “There must have been a 1 used to save up a tidbit of Soviet news or rumor, or a hundred men in Washington who wanted to join EX- question from Russian history, whenever I went to see COMM (the inner policy group), and at least half of him. Trot out such a tidbit, and instantly, as though by them were damned angry because they were not in¬ magic, he would be his old earthly shrewd, endlessly vited. But there I was, begging Chip to join, and there knowledgeable self again. he was, refusing the invitation! I think, too, that Chip Bohlen had the best time of his “Maybe it sounds a little thing, but by God, it seems whole life when he was young in Russia, courting his to me a big thing always to put the country first; and beautiful wife-to-be, and getting to know the subject he that's what happened.” He always put the country first, had chosen at first hand. Consider, then, how difficult it in truth. It is no bad epitaph. must have been, in such a happy time, to see his chosen 11 1974, Los Angeles Times subject clearly, with a truthful, always humane eye, and Reprinted by permission 2 FOREIGN SERVICE JOURNAL, February, 1974 For family luxury, ally yourself with a '74 Ford LTD Brougham. Enjoy plush interior trims, power Please send me full information on using my diplomatic discount to purchase a 74 front disc brakes, steel-belted radial ply tires, power steering and SelectShift automatic Washington, D.C. area: New York area: Diplomatic Sales Diplomatic Sales transmission as standard. 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Whether you’re coming— If you aren't TitE cream-colored gilt-edged invitation card greeted going—or living overseas, protected now, me from its tray in the vestibule as I arrived home after TRAVEL-PAK is an insurance you should be. a day at USIS New Delhi. “Mr. and Mrs. Sally policy specifically for you. For more Grooms” was the envelope address, lettered in the so¬ information, cial secretary's finest script. TRAVEL-PAK protects contact us today. Immediately my mind flashed back to scenes begin¬ against property loss under ning some eighteen months earlier in Washington when almost any circumstance, we had taken the momentous decision which turned my including: lawyer husband into the first male dependent in USI A’s foreign service. My own route into the foreign service Breakage - Fire - Theft - had been distinctly back door. A civil servant with five Shipping or Storage Loss - years experience, I was apologetically approached by Denting or Chipping - my boss one day and told that my promised promotion Pilferage - Explosion - was not forthcoming because the Director of DSIA Vandalism - Natural Disaster wished to use non-promotion as a device to phase out the civil service in favor of the Foreign Affairs And, the annual premium Specialist Corps (not yet created.) Tentatively I is about what you would pay broached the idea of converting to the foreign service, for shipping insurance alone. and within two weeks I had been metamorphosed into In addition, TRAVEL-PAK FSLR-4, a “domestic” Foreign Service officer. provides up to $100,000 1 suppose it took me at least a week to request an overseas assignment ... an evil thought which had protection against liability been lodged in some musty corner of my “domestic” suits resulting from bodily mentality for years. The first and most persistent ques¬ injury, property damage, tion was “what will you do with your husband?,” as pet’s liability and much more. though he were a piece of furniture which had to be shipped, stored, or sold. 1 calmly announced my deci¬ sion to ship him, as accompanied baggage, and within no time at all was assigned as Special Assistant to the In-Residence Coverage is now Public Affairs Officer in New Delhi after some frantic available at reduced rates. cable traffic from the PAO reluctantly agreeing to the assignment “if husband no problem.” But the fun had only begun . . . first there were the To: James W. Barrett Co., Inc. forms. “Residence and Dependency Report” was one. IQI 1140 CONNECTICUT AVENUE Someone had cosmetically changed the line which read WASHINGTON, D.C. 20036 • U.S.A. “name of wife,” to “name of spouse” in my honor, but had neglected to eliminate the following parenthetical Please send me your free brochure on Travel-Pak. I request: (give maiden name of spouse). Reasonably I understand there is no obligation and no salesman will complied with the requested name, “Thomas B," fol¬ call. lowing that with the logical explanation, “spouse has no maiden name . . . spouse has never been a maiden.” And then there were visas and shots and passports. NAME The experienced State Department nurse, confronting Tom for the first time turned on her tape-recorded mes¬ ADDRESS sage: “Name?” . . . “Tom Grooms” . . . “Post? . . . “New Delhi” . . . “Assignment?” . . . “Oh, 1 don't have an assignment, I’m a dependent.” The tape recor¬ .ZONE OR ZIP der switched off. She looked once, then again, taking in COUNTRY Sally and Tom Grooms are both graduates of DePauw University, Telephone (202) 296-6440 both Phi Beta Kappa. Sally joined UISA in 1966 as a management intern.

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When we simply “role-reversed” a work permit for him when unemployment among Indian traditional marriage, we were both unhappy: Tom be¬ attorneys was astronomically high. Being a pragmatic cause he had no sense of personal accomplishment; I soul with a wealth of avocational interests and hardly because his being dependent on me (not financially but wedded to the law, Tom's disappointment was rapidly psychologically as his window to the outside world) was overcome and days found him investigating our new debilitating. We learned that the world is uncomfortable environment and “integrating” bridge luncheons. when it can't define someone in occupational terms. (I One of his first projects was to decorate our soon learned the best answer to the question “What house ... a typical Embassy flat furnished with does your husband DO?” was “He’s a very good godown rejects. And a star was born! Imaginatively he lover!") And we learned that humor opens the door to made use of “bush” shirt material, lattice work over a many interesting conversations. People were reluctant wall enameled in Chinese red, and a profusion of green¬ to discuss our life-style with us until the Indo-Pak War ery. Friends and friends of friends flocked to see the of December, 1971, when talk of possible evacuation house. Indians were delighted with his use of inexpen¬ provoked Tom publicly to ask the question: “Let's get sive Indian cotton fabrics to transform a pedestrian set¬ this straight, who gets evacuated first . . . women and ting. Americans couldn't believe the chair that was in children or dependents?!” When fellow officers and In¬ everyone’s house (early John Foster Dulles) could look dians realized we weren't sensitive or embarrassed so good in ours. 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And Tom, All of that led to losing my dependent ... he left India well who knows . . . maybe he'll do free-lance design¬ last fall to enter Parsons School of Design in New York ing for American firms ... or urban planning in City. Bogota ... or digging for pirate treasure in the Carib¬ And what did we learn? Well, a tremendous amount bean! And who says women's lib isn't men’s lib as well! A sense of security, once you've arrived. Security has been helping government families make their way around the world since 1890. A more recent tradition (1897) is insured security once you’ve arrived. The move immortalized here was from Washington to Shanghai in 1948. Our Government Service Policy covers house¬ hold and personal effects against fire, theft, mys¬ terious disappearance, windstorms, floods and breakage during your stay anywhere in the world. 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8 FOREIGN SERVICE JOURNAL, February, 1974 In foreign relations, as in all other relations, a policy has been formed only when commitments and power have been brought into balance. —Walter Lippmann, U.S. Foreign Policy The Nixon System a further look I. M. DESTLER

ON AUGUST 22, 1973, President three top posts in Defense, the uisites to making them effective: Nixon announced the resignation CIA and ACDA directorships, designation of strong people to fill of William P. Rogers as Secretary and the chairmanship of our SALT the positions and support from of State and the choice of Henry A. delegation. Had Nixon been dis¬ their bosses (including, directly or Kissinger to replace him. Kissinger posed toward major changes in indirectly, the President) to enable was to continue to hold the position January 1973, he was in an excep¬ them to play strong policy leader¬ of Assistant to the President for tional position to be able to put ship roles. Thus the student of or¬ National Security Affairs. The them across. ganizational reform has been given “purpose” of this new arrange¬ But apparently he was not, and one more example of the futility of ment, said the President, was “to he did not. Three days after the formal changes by themselves in have a closer coordination” be¬ November election, the White changing how foreign policy really tween the White House and the House press office announced a gets made. State Department. “Another pur¬ major reassessment of “the basic Yet the President cannot rea¬ pose,” he added, was “to get the organization and relations” among sonably be accused of wanting work out in the departments where the foreign policy agencies. But no¬ major organizational changes and it belongs.” thing discernible resulted. The failing to achieve them. Nor is Until this announcement, there high-level vacancies were filled there convincing evidence for an¬ had been remarkably little change mostly with persons known for other possible explanation—that he in United States foreign policy¬ loyal, reasonably effective previ¬ was temporizing on personnel and making since the Nixon adminis¬ ous service to the Administration, structural changes until the time tration developed its basic proce¬ but not of such strength and calibre was ripe to send Kissinger to State. dures and patterns in 1969-71. Pres¬ as to “threaten” those closest to We are not privy, of course, to his ident Nixon began his second term the President. Apparently this deepest intentions in making the with a rare opportunity to under¬ suited both Kissinger and his some¬ new appointment, but there is take serious organizational reform. time White House rival H. R. no reason to believe it was He had an overwhelming election Haldeman, who as chief Presiden¬ done primarily on organizational victory, a reputation for major tial Assistant was the prime man¬ grounds. Despite periodic public foreign policy achievements, and ager of the appointments process. adherence to the virtues of strong considerable experience with the But it was not in any sense a team Cabinet officers, the President’s people and processes of the foreign of strong, aggressive foreign policy actual conduct of his office has affairs government. He faced the leaders chosen primarily by the consistently underscored his pref¬ future with the opportunity—and President’s chief foreign policy ad¬ erence for dealing with and through the expressed determination—to viser. a handful of White House-based make widespread personnel There were certain modest for¬ advisers. His apparent satisfaction changes. And vacancies were soon mal changes made in 1972 and with the NSC system has been re¬ to be filled in four of the five top 1973. The State Department ac¬ flected in recurrent efforts to re¬ State Department positions, the quired a “Deputy Secretary” with structure the domestic government increased management responsi¬ along parallel lines. Watergate has /. M. Destler, currently Research Associate bilities, and an “Under Secretary brought a tactical retreat from the at the Brookings Institute, has taught at Princeton University and the University of for Economic Affairs” to parallel most ambitious effort in this direc¬ Nigeria and has held several foreign its Under Secretary for Political tion, Nixon's January 1973 as¬ policy-related staff positions in the execu¬ Affairs. The Kissinger staff was re¬ signment of overarching coordina¬ tive branch and on Capitol Hill. This article structured to establish several dep¬ tion responsibilities to five Presi¬ is adapted from the "Epilogue” to his hook uty positions, with important¬ "Presidents. Bureaucrats, and Foreign Pol¬ dential Assistants and three Cab¬ icy," which will soon he republished by sounding mandates such as “plan¬ inet members doubling as broader Princeton Press in an expanded, paperback ning,” “operations,” and “inter¬ purpose Presidential Counselors. edition. In the article. Destler expands on national economic affairs.” But in He announced the Kissinger ap¬ his analysis of Nixon-Kissinger foreign neither place were the elevations in pointment as another move to push policy-making in the light of international and domestic events since the book went to title buttressed by the two further responsibility to the departments. press in mid-1971. top-level actions that were prereq¬ But the President has not increased

FORKIGN SERVICE JOURNAL, February, 1974 9 the number of people through In the years before 1969, Henry conditions greatly facilitated them whom he conducts serious gov¬ Kissinger frequently expressed all. Moreover, these specific at¬ ernment business, whether foreign the view that only by freeing tainments appear to be linked to a or domestic. It is more reasonable themselves from bureaucratic broader conceptual approach, an to conclude—unless and until encumbrances would foreign effort to build a “structure of events prove otherwise —that he policy leaders in modern states peace” around astute management of relationships among the major intends little change in the way he be able to accomplish substan¬ and Kissinger handle foreign pol¬ world power centers. A five power tial things. icy, and that he has made the move world is emerging, Mr. Nixon has for a range of other reasons—a de¬ suggested. And implicit in this sire to reward Kissinger and to important—and diametrically op¬ Administration’s approach is the eliminate the periodic embarrass¬ posed—questions. The achieve¬ conviction that the world needs to ment caused by having his Secret¬ ments suggest that the Nixon sys¬ be managed—and can be man¬ ary of State on the periphery of ac¬ tem has worked, whatever its ap¬ aged—much as the post-Napo- tual policy-making; the difficulty of parent deficiencies. The Watergate leonic world had ideally been— by getting another good man to take not only suggests that the Nixon careful dealings among strong the Secretary job as long as Kis¬ Administration has been a national leaders of these power centers, singer remained in the White disaster, but raises grave doubts leaders politically and institution¬ House; and above all the desire to about any effort to strengthen the ally free to bargain internationally, demonstrate renewed Administra¬ foreign policy power of the modern to offer inducements and respond tion vitality in the year of Water¬ Presidency. to threats in a flexible (and fre¬ gate. quently secret) manner. The President has repeatedly Has the System Worked? An extended analysis of the rel¬ expressed his satisfaction with In the years before 1969, Henry evance of this approach to today’s both his foreign policy accom¬ Kissinger frequently expressed the world would be beyond the scope plishments and the Kissinger-based view that only by freeing them¬ of this article. But neither can the system through which he achieved selves from bureaucratic encum¬ issue be ignored. For the real them. Since their personal relation¬ brances would foreign policy lead¬ Nixon-Kissinger case for the effec¬ ship has been so important to both, ers in modern states be able to ac¬ tiveness of a closed, “two-man” it is likely that many characteristics complish substantial things. The system for conducting our foreign of the process when Kissinger was major Administration foreign pol¬ policy has come to rest not on the Assistant will continue with him as icy achievements are a result of once-emphasized distinction be¬ Secretary. Nevertheless, Nixon putting this concept into practice. tween “policy” and “operations.” Administration foreign policy¬ The Nixon NSC system had been Rather, it depends on the assump¬ making institutions are clearly en¬ partially designed and totally ex¬ tion that US relations with a small tering a new phase. This makes it plained as a means of enhancing number of counterpart power cen¬ doubly useful here to undertake a the quality and responsiveness of ters are what count, that the prin¬ further assessment of the pre- the bureaucracy’s contribution to cipal foreign policy issues of con¬ August 1973 Nixon system in the foreign policy-making. But it be¬ cern to the United States can be light of the developments of the came increasingly, in practice, a dealt with effectively through ne¬ preceding two years. To the extent vehicle for excluding or diverting gotiating relationships with these that some serious institutional the bureaucracy while Nixon and power centers, and that top offi¬ change is now intended, a critique Kissinger did the “real” business cials in these centers (and in the of the immediate past can highlight on their own. The primary targets United States) will have enough problems with which such reform of attention were China, Russia, political weight at home to be able should cope. To the degree that and Vietnam. Kissinger handled to deliver on the deals they make things continue as they are, the the most critical negotiations per¬ by getting the requisite actions out critique, if valid, may illuminate sonally, very often secretively, of their domestic political systems. the future as well as our past. keeping the rest of the US bureau¬ To the extent these assumptions And the developments since cracy in the dark. His one client are valid, then maybe two men can 1971 have a more general impor¬ was the President, who was inti¬ handle this task (with appropriate tance to those interested in foreign mately involved in planning and di¬ analytic and operational staff sup¬ affairs organization. For if little recting these efforts, and who cap¬ port), and perhaps they can handle changed between mid-1971 and ped their achievements with visits it with greater coherence and pur¬ mid-1973 in the foreign affairs gov¬ to Peking and Moscow. pose than a larger number. And ernment, very much changed in the Threats from these two Com¬ maybe most of the day-to-day ac¬ broader international and domestic munist adversaries were, for most tivities of the foreign affairs bu¬ political worlds to which any or¬ participants and observers, the reaucracy can be ignored—as un¬ ganizational approach must relate. overriding problem of postwar necessary for the major enterprises From July 1971 through January American foreign policy. Vietnam of Nixon-Kissinger diplomacy, and 1973 we saw a series of dramatic dominated the '60s. To have as unimportant enough not to un¬ Nixon foreign policy accomplish¬ negotiated withdrawal from the dercut these enterprises. Thus the ments. Then, beginning in about war and built new relationships Nixon-Kissinger system might March of 1973, we had the crisis of with Russia and China is no small work even if, as I believe, the “op¬ the Presidency brought on by the set of achievements, even if chang¬ erational” decisions are what pol¬ Watergate revelations. Both raise ing domestic and world political icy usually consists of. For the 10 FOREIGN SERVICE JOURNAL. Februurx. 1974 two-man system could dominate Finally, the Nixon-Kissinger sys¬ communicated or aims might be the operational decisions that tem of closed policy-making is pursued which were inconsistent count. limited by the limits of Presiden¬ with the clandestine efforts of On the other hand, to the extent tial power at home. Spurning those at the top. There were not that power over the issues to be broader bureaucratic or domes¬ the sort of vested interests in a negotiated is widely dispersed, the tic alliance-building, it tends to many-faceted existing relationship two-man system will not do. If work only on those issues where which might inhibit, suffer from, or power is dispersed overseas, then resist major policy changes when the President can personally as¬ the United States needs many the leaders sought to spring them more credible negotiators, able to sure the official or unofficial US on their astonished publics. But if speak authoritatively for the Presi¬ action which is at issue. such an unencumbered “clean dent and the United States to sev¬ slate” minimized the costs of this eral levels of many governments. If these commitments. Absent such approach to US-Chinese relations, power is dispersed at home, then counterparts, negotiating at the top the “Nixon shock” effects on the Nixon-Kissinger approach is brings meager results. And if many Japan were multiplied because of inadequate also. For the secrecy other foreign officials then need to many levels and forms of Jap- and masked maneuvers of the be dealt with, the system doesn’t anese-American interdependence closed system tend to conflict with work. Nixon and Kissinger can’t which the sudden US move toward the building of the broader under¬ do all this themselves, and lesser China seemed to threaten. standing and alliances required for officials have neither the delegated And it is the US-Japanese case securing sufficient domestic sup¬ authority nor the understanding of that seems more characteristic of port to sustain the policy. top-level aims that is required. the modern international system, Obviously, some issues and In the Nixon-Kissinger period it above all in the relations among some relationships will meet these has been the adversary, totalitarian advanced industrial societies. Offi¬ criteria better than others. What is nations where such strong coun¬ cials deal with one another across a necessary, then, is to distinguish terparts have been found. They wide range of specialized but in- between those situations where a cannot always be found even terwined policy issues. Their effec¬ closed, Nixon-Kissinger-type ap¬ there—neither Leonid Brezhnev tive management requires not bi¬ proach is likely to be effective, and nor Chou En-lai, for example, had lateral summit dealings but com¬ those where it is not. Logic and ex¬ a domestic political base in the plex, many-level, many-issue mul¬ perience suggest that the system mid-’60s comparable to what each tilateral negotiations on troop works well when three conditions had developed by 1971. But strong levels, trade barriers, and ex¬ are met. It is effective: (1) with central leadership is far less likely change rates—negotiations that countries which have strong coun¬ to arise in the advanced industrial, usually need to proceed on reg¬ terpart leaders with whom to cut democratic societies of Europe and ularized, separate, but somehow deals; (2) in bilateral relationships Japan. In Europe there is no one related tracks. which are limited in depth and leader, but a “Community” of The need for issues that the US breadth; and (3) on issues where semi-sovereign states struggling to President can dominate. Finally, United States leaders can person¬ construct a larger economic and the Nixon-Kissinger system of ally control the policy outcomes political order. Japan does have a closed policy-making is limited by about which they need to deal. chief of government, of course, and the limits of Presidential power at Each of these intertwined limits Nixon and Kissinger have sought home. Spurning broader bureau¬ deserves spelling out. to use periodic summit conferences cratic or domestic alliance¬ The need for strong foreign to strike binding political bargains building, it tends to work only on counterparts. The apparent Nix¬ with Tokyo. But the Japanese those issues where the President on-Kissinger preference for dealing Prime Minister is hemmed in by a can personally assure the official or with adversary nations has often collegial Cabinet system, a strong unofficial US action which is at been noted. And to anticipate a bureaucracy, and a political tradi¬ issue. Usually this reinforces the later point, the Nixon-Kissinger tion stressing broad consensus. He Nixon-Kissinger bias toward difficulties with international al¬ is unable to “deal” as Nixon and political-military issues and in¬ liance relationships are paralleled Kissinger would like, and the result struments. It is easier to deliver a by their aversion to building and of pressing him to do so has been B-52 bomb load on Hanoi than to working with strong allies domesti¬ frustration on both sides. win Congressional approval of a cally, whether in the bureaucracy, The need for relatively unen¬ piece of trade legislation. or the Congress, or the broader cumbered bilateral relationships. Again—this time ironically community of Americans con¬ Another way in which the Nixon- —China is the clearest positive ex¬ cerned with foreign policy. But the Kissinger system is better adapted ample. The President had the per¬ taste for adversary dealings has to adversary dealings is in its need sonal power to dispatch his emis¬ structural as well as personal roots. for relatively simple, unencum¬ sary and arrange the contacts re¬ For Nixon-Kissinger “diplomacy bered relationships. China is the quired, and the Taiwan lobby at the top” requires counterpart ideal example. Since few Ameri¬ proved to be a “paper tiger.” With leaders in the other major power cans had any serious ongoing deal¬ Russia, many of the new forms of centers with political weight and ings with Chinese counterparts in bilateral cooperation are relatively flexibility comparable to their own, 1971, there was no network of offi¬ non-controversial and subject to foreign leaders able to make large cial relationships and unofficial ties Presidential will. The SALT commitments and then deliver on through which signals might be agreements, which did need Con- FOREIGN SERVICE JOURNAL, February, 1974 gressional approval, encountered Rather than seeking to broaden the degree that Nixon-Kissinger limited difficulty because they his base by mollifying some of diplomacy with Russia and China were generally consistent with his critics, he attacks those is successful, one major (and ap¬ Congressional predispositions. But whose support he needs as vio¬ parently intended) result will be to the promise of most-favored-nation lators of some imagined Presi¬ transform the rather simple adver¬ treatment for Russia on trade sary relationships of the past into lacked effective Congressional dential prerogative of unham¬ pered executive action in for¬ multi-issue, multi-level interde¬ support, and seems likely to foun¬ pendencies much less manipulable eign affairs, or as advocates of der because of American Jewish through negotiations at the top, and opposition to Soviet emigration “neo-isolationism” and a total much more affected by broader US policies. And there is strong Con¬ retreat from America’s world domestic politics. gressional opposition to the large role. Most disturbing of all the reac¬ defense budgets that Nixon and tions to limits of the system, how¬ Kissinger see as essential to then- tinue to concentrate on those is¬ ever, has been the President’s typ¬ negotiating strategy. sues and relationships to which the ical response when domestic poli¬ The most dramatic case of the approach is congenial, despite pub¬ tics keeps him from doing what he domestic political limits of the lic statements that the priorities are wants to do on the world scene. Nixon approach, however, has changing. Thus, in the first eight Rather than seeking to broaden his been the issue on which he has months of their declared “Year of base by mollifying some of his cri¬ staked the most personally—his Europe,” Nixon and Kissinger still tics, he attacks those whose sup¬ cherished, oversold Indochina ac¬ appeared to be giving their prime port he needs as violators of some cord. Presidential rhetoric about attention to those adversary rela¬ imagined Presidential prerogative “peace with honor" and “peace tions stressed in 1972. They did not of unhampered executive action in that will last” was widely dis¬ seem to be focusing seriously on foreign affairs, or as advocates of counted in January 1973. But those economic questions which “neo-isolationism” and a total re¬ Nixon apparently meant it, and are central to any major Atlantic treat from America’s world role. staked his hopes for a lasting set¬ enterprise, partly because they Thus he exacerbates those sub¬ tlement on the expectation of con¬ lack substantive interest in these stantive policy differences (and bad tinued leverage with Hanoi. In part issues, partly because there are no personal relations) which led to his this was to be exercised through authoritative counterparts with setback in the first place. Appeals the new relationships with Moscow whom to deal on these issues. over the heads of the “elitists” to and Peking. But of critical impor¬ A second tendency has been to the “silent majority” can be tacti¬ tance was direct leverage through lecture and sometimes punish cally effective on occasion. But if the “carrot” of promised large- those foreign governments which unaccompanied by serious efforts scale reconstruction assistance, do not perform as the Nixon- at dialogue and consensus-building and the “stick" of further use of Kissinger system needs them to. with those Congressional ieaders the B-52s. Indeed, the December Thus when a Japanese Prime and other foreign policy-concerned carpet-bombing looks, in retro¬ Minister is squeezed into promis¬ Americans who would be likely to spect, not so much like an effort to ing a textile export restraint agree¬ respond positively to such efforts, win major changes in the terms of ment and proves unable (for pre¬ such an approach is a prescription the agreement, as a demonstration dictable reasons) to deliver on his for continuing crises, for recurrent to Hanoi that the President was promise, the fault is seen to lie not threats to that ability to act which both able and willing to inflict such in unwise US tactics or unrealistic the President so prizes, for the nur¬ punishment, and thus might do it US expectations but in Japanese turing of a strong policy opposition again if the agreement were not ob¬ failure to measure up to the role of ever-ready to reverse or check him served. de-Gaulle-type world statesmen. when it has the opportunity to do But as of this writing, domestic They are lectured in State of the so. And this opposition's oppor¬ politics has taken both options out World messages about the “obliga¬ tunities to prevail have increased of Nixon’s hands. The President tion to keep the specific commit¬ because the President, like his has been forced by Congress to ac¬ ments made to one another.” predecessor, has squandered a ma¬ cept an August 15th bombing cut¬ Shock tactics are employed to get jor asset for securing support for off not just for Cambodia, but all of the Japanese to stand up and join controversial actions—his personal Indochina. And the only thing with the five-power world. Thus the credibility. less Congressional support than needs of the Nixon-Kissinger in¬ In sum, the Nixon-Kissinger the bombing is the aid program for ternal policy-making system and closed policy-making approach North Vietnam. their particular approach to inter¬ seems effective only in a very lim¬ Thus, these three limitations national diplomacy are elevated to ited range of foreign policy situa¬ combine to reduce the range of ef¬ the level of moral truths. tions. And this range is narrowing fectiveness of the Nixon-Kissinger It would be remarkable indeed if as our relationships with Russia approach to a very limited range of US pressure could somehow so and China are transformed, as issues. And at least equally disturb¬ alter the internal politics of Europe problems of the advanced, cap¬ ing has been the way Nixon and and Japan as to give rise to the sort italist societies come to the fore, Kissinger have tended to respond of powerful leaders with whom our and as Americans’ tolerance for to difficulties engendered by these leaders like to play international discretionary Presidential foreign limitations. poker. But while this is unlikely, policy action diminishes. All of One tendency has been to con- the opposite is very possible. To these limitations underscore the 12 FOREIGN SERVICE JOURNAL, Februan. 1974 need for Presidentially-linked for¬ If such an approach has a drawal, he was getting results and eign policy institutions with chance of being viable as a had even won through some com¬ broader substantive reach and bet¬ means to enhanced Presidential bination of luck and shrewdness ter capacity to coordinate multi¬ policy influence even some of the reluctant admiration of his cri¬ subject and multi-level US nego¬ the time, it is likely to be doubly tics. And not only did his foreign policy achievements look impres¬ tiating initiatives. All suggest that tempting to future Presidents sive. His FY 1974 budget was a the Nixon-Kissinger foreign pol¬ because it makes life so much icy-making approach would be major effort to “change national more comfortable for them. looking less and less impressive priorities,” and (again as of March) even had “Watergate” never en¬ it appeared that, through persistent tered the American political vo¬ scandal to date do not include use of vetoes and impoundment of cabulary. But it has, leaving no US Henry Kissinger or any other im¬ appropriated funds, he was likely foreign policy institution or issue portant foreign policy figure, it is to prove generally successful. To a unaffected. Watergate has weak¬ evident the paranoid White House significant degree, he may still be. ened the ability of President Nixon atmosphere was in considerable If such an approach has a chance to carry out any sort of strong part a reaction to critics of Nixon's of being viable as a means to en¬ foreign policy, however much he Vietnam policy, and that many of hanced Presidential policy influ¬ may be trying. And for some, it has the violations of the rights of indi¬ ence even some of the time, it is also cast further doubt on the de¬ viduals in and out of government likely to be doubly tempting to fu¬ sirability of strengthening the Pres¬ were undertaken on “national se¬ ture Presidents because it makes idency for any purpose. curity” grounds. life so much more comfortable for them. It is far easier for a chief ex¬ Today's crisis of the Presidency The Nixon Retreat From Politics began well before Watergate. Con¬ ecutive to deal through a few cern about arbitrary and unrespon¬ The “essential mistake” of the “loyal" aides almost totally de¬ sive Presidential power in foreign Nixon men, wrote Nelson Polsby pendent on himself, than to con¬ policy was nurtured by the Viet¬ in the Washington POST last Au¬ duct extensive personal efforts at nam war, and reached one crisis gust has been their assumption bargaining and persuasion which peak during the Cambodian incur¬ “that the political process in the will frequently prove frustrating sion of 1970. Publication of the United States is something that and occasionally be directly re¬ Pentagon Papers in mid-1971 rein¬ takes place only every four buffed. It is easier to work with his forced the impression that Presi¬ years—on Election day —and that own White House “court” than dent Johnson had been ordering the right to exercise virtually un¬ with those whose interests diverge one thing and representing his pol¬ limited discretion until the next from his and must be brought to see icy publicly as the opposite. And election is conferred by success at the gains for them in acting as he revelations in 1973 suggest that the the polls. This is simply wrong; wants. And the closed Presidency Nixon Administration may have politics in America was designed is likely to give the President a been more systematic and more de¬ by the Founding Fathers to be a feeling of great flexibility and room termined than its predecessor in continuing process of mutual ad¬ for maneuver. Those who have not the practice of official deception. justment among officials variously been consulted need not be in¬ The large-scale, “secret” bombing situated and differently em¬ formed, much less heeded. The of targets in Cambodia begun by powered—but all legitimate." political limits on his power do not Nixon in March 1969, we now By the analysis in Richard confront the President directly and learn, was “covered” by falsifica¬ Neustadt's “Presidential Power,” daily in his personal relationships. tion of Air Force reports, consid¬ a President cannot act as Nixon He is encouraged to act as if he erable wiretapping of government has acted and still be effective—he has, not a Neustadtian license to officials suspected of leaking in¬ is too dependent on his relation¬ persuade, but a “mandate” to de¬ formation about it to the press, and ships with Congressmen, the news cide things and have his decisions the President’s assurance to the media, and the general “President¬ obeyed. He leads less than he or¬ American people 13 months later watching” group of government- ders. Those who obey are “loyal”; that Cambodia’s neutrality had related professionals that Neustadt those who do not are “enemies.” been scrupulously observed. calls the “Washington commun¬ On many issues, however, the It is the activities centering ity.” Watergate seems to be vin¬ President needs the constructive around the Watergate campaign dicating this analysis; in some part, cooperation of persons outside his espionage operation which have the outpouring of criticism can direct control, and where he does, done the greatest damage to the even be characterized as the this approach will be limited in ef¬ Nixon Presidency. But the same “Washington community’s re¬ fectiveness even when he is riding pattern of closed policy-making, venge.” But until about March of high in the polls. For example, extreme distrust of the bureauc¬ 1973, it looked as if Nixon might be Nixon has had recurrent problems racy, and official deception which proving the contrary—that the in getting Congressional approval the Ervin Committee hearings have President could ignore or scorn the of his legislative proposals. And it illuminated is characteristic of Washington “influentials” and get is more than coincidence that a Nixon’s foreign policy activities as away with it. Despite a part-secret “loner” President who built few al¬ well, and the lessons of Watergate and part-deceitful foreign policy liances with other major political have relevance for foreign policy persisted in against the predomi¬ figures and institutions during his organization as well. If those indi¬ nant “establishment” opinion fa¬ days of plenty, now finds himself viduals driven from office by the voring a more rapid Vietnam with¬ remarkably bereft of allies to give FOREIGN SERVICE JOURNAL, February, 1974 1 3 him support and aid in his hour of that might have encouraged his “President’s men,” distinguished need. non-compliance. If Watergate-type by loyalty and efficiency, carry out Nixon's closed system seems to isolation and paranoia are a malady orders without asking why and ex¬ have carried within it the seeds of to which the White House is par¬ pect 'heir subordinates to do its own destruction. The clandes¬ ticularly prone, and if the Assistant likewise. tine modus opemndi of an insu¬ cannot escape being affected, then A State-centered strategy can lated White House spared it the we have one more reason why the simultaneously broaden the reach corrective effect of the political President should be urged to locate of the “Presidential” foreign pol¬ process for its mistakes and mis- his chief foreign policy subordinate icy system and make the system judgments, while at the same time elsewhere. And in this regard, the more open, if it widens the number creating that peculiar combination designation of Kissinger as Secre¬ and range of officials with Presi¬ of bold arrogance and chronic in¬ tary of State seems a definite step dential foreign policy mandates. To security to which conspiratorial en¬ in the right direction. do this, of course, is to increase terprises cut off from the broader But does the lesson go further? Presidential influence over “opera¬ political community are prone. It Does it call into question the de¬ tional" policy matters. But it also was hardly surprising, in restro- sirability of any foreign affairs or¬ serves to broaden and open up ex¬ spect, that some of the mistakes ganizational strategy designed to ecutive branch decision-making, grew into crimes, and, nurtured in build foreign policy coherence and to make the President respon¬ the unreal atmosphere of a White around the Presidency? sive to a broader range of facts and House which had lost its sense of At the broadest level, what we forces. For once it is recognized proportion, they grew in number as face here is the age-old dilemma that such a Presidential “team” well as magnitude. And the extent about power. In urging central will be participating in a process of of the crisis once the revelations purpose and coherence in foreign ongoing formulation and reformu¬ began was a function of the degree policy-making, this analyst has lation of objectives as well as work¬ of the Nixon men's separation generally adopted a Hamiltonian, ing for their realization, enlarge¬ from the broader political commun¬ Rooseveltian view of government ment of this team leads, other ity which was now passing judg¬ as the developer and pursuer of things being equal, to Presidential ment. The gap between what they positive national purposes. But sensitivity to a broader range of said and what they did had grown there is another view with compar¬ substantive and political considera¬ so wide, and the habits of official able historical credentials, one tions. This is particularly true deception and manipulation of which stresses the dangers of con¬ when this team is not a group of facts so ingrained, that when the centrated government power and White House aides solely depen¬ dam burst the gap guaranteed a tor¬ the need for “checks and bal¬ dent upon Presidential confidence rent of revelations, and the habits ances” to preserve governmental for their influence, but a group with of deception assured that the Pres¬ accountability and personal liberty. “line” foreign policy positions and ident and his team would prove in¬ In today’s atmosphere, this latter operating responsibilities which capable of operating credibly and view is coming to the fore. The give them bases for bureaucratic persuasively in the public political overriding emphasis is on restraint and broader policy leadership to climate of challenge and response of excesses rather than achieve¬ supplement their Presidential rela¬ to which they had grown so unac¬ ment of positive objectives, partly tionships. customed. They have found it par¬ because most who write about such A further gain of a State- ticularly rough because they can no things today have grave reserva¬ centered strategy is that it can re¬ longer hide behind the mantle of tions about much of what the pres¬ store the accountability of top authority, having destroyed by ent incumbent is inclined to use his Presidential foreign policy appoin¬ their actions the long-standing pre¬ power for. tees to Congress, enhancing the sumption that the official version of But the current predisposition prospects for a serious executive- an issue is more responsible and against centralization of power for legislative dialogue. This would not believable than that of the critics. positive purposes runs the opposite lead to a major shift of decision¬ To return to foreign policy or¬ risk—of neglecting the major pur¬ making power to Capitol Hill—in ganization, the dangers inherent in poses for which a coherent, pur¬ most cases, Congressmen are no this White House style, so viv¬ posive US foreign policy is much more eager to seize such responsi¬ idly dramatized by Watergate needed, above all the building of a bility than Presidents and bureau¬ strengthen the case against building basis for peaceful relations among crats are to yield it up to them. But foreign policy-making around the nations. And it ignores the fact that it would facilitate what Alton Frye, Assistant to the President for Na¬ one major cause of Watergate was writing in FOREIGN POLICY, has tional Security Affairs. Whatever that the Nixon Administration's called the role of Congress as his share of the blame for the “coherence” was largely limited to “constrainer,” by sensitizing the wiretapping of at least seven mem¬ a White House which felt itself Administration to limits beyond bers of his staff and ten others under siege in a community of which Congress could not be led. (without any remotely-defensible enemies. Thus, for this author, And most of all, the recurrent pres¬ reason that has yet come to light), coherence in foreign policy-making sure for public and private explica¬ one factor was that Kissinger remains a goal eminently worthy of tion before Congress would put was—in 1969—a somewhat suspect serious organizational efforts in its pressure on the Secretary and his figure in a loyalist White House, behalf. This coherence need not, key subordinates to provide consis¬ without the official stature and the however, take the form of a tight- tent and credible explanations of responsiveness to his subordinates fisted control from above in which Continued on page 28

14 FOREIGN SERVICE JOURNAL, February, 1974 Divina natura dedit agros, ars humana aedificavit urbes. (Divine Nature gave the fields, human art built the cities)—Varro

now come to be haunted by the mitment to integration launched by SUMMARY limitations in resources and shifts the 1956 Supreme Court decision. The crisis of the American city in attitudes it has itself created. The unskilled and the semi¬ has its roots in the institutions and Where the population density is skilled who are most in need of attitudes that helped achieve an greatest—in our metropolitan are¬ employment often cannot follow unprecedented standard of living as—the problems are particularly their jobs that moved out of the for our people. We are bumping acute. An indigent, largely black central city. They cannot afford ggainst the limits of the market population, disproportionately com¬ suburban housing nor would the place in promoting a renaissance of posed of the unruly young and suburbs accept them. Not only is urban values. The experience and the dependent old. presses against there no question of moving, there techniques employed by foreign an aging infrastructure. The city’s is no way to get to work given the cities to stop their own deteriora¬ tax base is eroding as those who inadequacies of urban mass trans¬ tion have much that is pertinent to are better off flee to the suburbs port that continue to plague most our problems. To restore the qual¬ taking along not only their higher American cities. It will take well ity of urban life for the enjoyment taxable incomes but some of the into the '80s to reverse the decline of all citizens will require the ac¬ business establishments that have of mass transit; the required in¬ ceptance of far greater restraints on provided revenue for the city and vestment is huge and the building the individual than have been jobs for the lower income groups. of systems as an urban afterthought thought tolerable until now. More services are expected and is complicated, time-consuming have to be provided for the jobless and disruptive. Meanwhile the poor at a time when the city income fragmentation of the city by the base is shrinking rather than ex¬ glistening bands of lethal highways To DESCRIBE our massive urban panding. Municipal efforts to ex¬ that were supposed to tie it all to¬ problems as the by-product of suc¬ tend the taxable resources by gether goes on unchecked. cess in achieving an unprecedented bringing the suburbs into the fold There are a few particularly standard of living for the American are fought bitterly and successfully American aspects to the urban people is entirely accurate but it by the suburbanite opponents of crisis faced by our society, those does not make these problems any annexation who have the law on dependent on the fragmentation less real or less vexing. In provid¬ their side and see no reason to pay along racial lines, but the pressures ing more material goods and physi¬ for services they do not receive nor of mounting populations on de¬ cal comforts for a greater number require. teriorating infrastructures and re¬ of people than at any time in the With the inner city darkening sources are of universal concern as history of man, our bountiful sys¬ with every passing year and noth¬ city dwellers increase at more than tem of private initiative and min¬ ing discernible on the horizon that twice the rate of the general popu¬ imum government direction has would change this trend, the nation lation. The year 2000 will see 60 appears to be sliding into apartheid percent of the world's people living This article is excerpted from a case study on a metropolitan scale—black in cities of over a hundred thou¬ by George G. Wynne prepared for the I5tli inner cities ringed by white sub¬ sand population. session of the Senior Seminar in Foreign urbs. It is an American tragedy We hold up the mirror of the fu¬ Policy. Mr. Wynne is now Foreign Service Inspector for USIA. He is a frequent con¬ that this increasing polarization is ture to the industrialized countries tributor to the.JOURNAL. the end result of a national com¬ of Europe and Asia. In it they may FOREIGN SERVICE JOURNAL, February. 1974 15 discern errors to avoid as we in To set up counter-magnets to the million to 200,000 by 1985. The turn can look to them for lessons to attraction of Paris, the French gov¬ city's development into seven self- draw from the way they apply our ernment designated eight provin¬ contained communities of about experience to their own traditions. cial centers for preferential alloca¬ one million people each surround¬ Urban problems cut clear across tion of public works and cultural ing the urban core as provided by ideological lines—central planning development funds with special in¬ the master plan will completely as in Moscow does not produce centives for the transfer of com¬ change the employment and trans¬ immunity to traffic congestion— mercial and office facilities. The portation pattern. Chief architect and the need for pertinent answers government itself took the lead in Mikhail Posokhin notes that his grows more critical with each pass¬ dispersing some of its research and emerging polycentric capital will ing year. Somewhere there is a development, military and indus¬ provide employment within a crossover point beyond which trial activities to the counter¬ 15-minute transportation radius for urban ills become terminal and the magnet “metropoles d'equilibre.” about three quarters of the popula¬ death of the city spells the end of Another European example of tion and elementary schools within civilized living. economic stimulation through gov¬ walking distance for every pupil. ernmental incentives is given by To reach this goal the subway net Economic Stimulation Sweden which has offered low in¬ is being doubled from its present and Disincentives terest loans and special “employ¬ 156 to 320 km by 1985, trolley and The private sector of the US ment grants” to industry together bus lines are being extended and economy has not made a significant with training grants and transport housing construction continued at effort to stimulate the economy of rebates up to 35 percent for goods the current impressive rate of depressed urban areas, nor can it shipped from the new facility. The 120.000 units per year within the be expected to concern itself with a Swedish government is transferring Moscow metropolitan area. The task that offers only risks without functions employing about 11,000 new housing, produced by indus¬ the promise of profits. The public people to the provinces and plans trialized on-site building methods sector on the other hand has not ultimately to relocate 12 percent of using factory produced modular sought the powers to obtain the the government’s work force. Dis¬ units, will permit the thinning out kind of measures and incentives incentives now under considera¬ and relocation of people now living successfully applied in many parts tion include a “penalty tax” to in the inner city surrounding the of Europe and in Japan to bring deter the movement of new indus¬ Kremlin. This inner core will serve about industrial relocation. While tries into the greater Stockholm as the governmental, historic and subsidies and tax incentives are the area. cultural center of the country, a tools used in mixed economies, re¬ Along the same line, the showcase of Soviet achievement location objectives can and are Japanese Diet is debating a set of for citizen and foreigner who will being obtained in Eastern Europe related laws that would make a des¬ come into the core city only to through master plans promulgated ignated list of industries— gener¬ celebrate and partake of the attrac¬ by the central planning authorities. ally heavy polluters—liable to a tions it offers. To complete the Industrial relocation through tax so-called “evacuation tax” in¬ transformation of the capital into a incentives and disincentives as tended to encourage early depar¬ polycentric urban region the exist¬ practiced in Europe and Japan also ture from the Tokyo region. This ing greenbelt will be extended into serves as a tool of population and would be coupled with tax and the city by a finger system of park- pollution control policy. The other incentives for moving to un¬ lands along the banks of the French government uses a system derdeveloped rural areas. Stiff Moskva and smaller rivers. of accelerated depreciation of con¬ taxes on the expansion of existing In Hungary, relocation subsidies struction costs, business tax ex¬ facilities and all new construction to industries, coupled with housing emptions up to five years, cash by firms already in Tokyo are also restrictions in Budapest to discour¬ grants up to 25 percent of the new anticipated under the proposed age internal migration, have re¬ investment costs and subsidies for law. duced the capital’s share of the in¬ training and moving personnel. The centrally-planned econo¬ dustrial population from 55 percent At the same time, disincentives mies of Eastern Europe being in in 1966 to 38 percent in 1971 ac¬ in the form of a special tax per full control of their industrial base cording to official Hungarian fig¬ square meter imposed on all new can insure the execution of master ures. The renting or buying of industrial and commercial con¬ plans by government action alone. apartments in Budapest has been struction in the Paris area are in¬ The Moscow plan has thinned out limited to people registered as resi¬ tended to discourage further migra¬ and reshuffled the Soviet capital's dents for at least five years and not tion into the metropolitan region industries with the intention to a single new manufacturing plant which accounted for nearly 17 per¬ stabilize population at seven mil¬ has been permitted to move to the cent of the entire French popula¬ lion. The current Five Year Plan Budapest region for the past five tion when the program got started. foresees the transfer of over a years. The success of this coordinated ef¬ hundred pollution-producing indus¬ While the dimensions of the re¬ fort is evidenced by the fact that trial plants to regional centers at location problem are thus different new construction in the Paris re¬ least 80-150 kilometers away from from the United States—the objec¬ gion, which amounted to half of all the capital, strict control of migra¬ tive in both Europe and Japan construction in France in the tion into Moscow and the reduc¬ being the movement away from the mid-’60s, was down to less than 10 tion of population in the city's his¬ congested, overactive capitals— percent by 1972. torical center from the present half the type of techniques and incen-

16 FOREIGN SERVICE JOURNAL, February, 1974 tives employed have a distinct ‘Notwithstanding the current nicipalities are the largest land bearing on the economic stimula¬ conventional wisdom that looks owners, Spanish municipalities are tion of our own central cities. Gov¬ at the American city and con¬ developing large tracts of land for ernmental incentives and disincen¬ cludes: “Who needs it in an ur¬ industry, and in Japan some twenty comprehensive regional develop¬ tives can be used to promote ban civilization?”, there is noth¬ ment plans provide for government movement out of the city even ing in western experience to without those stringent measures control over land use. This trend is available to central authorities in a substantiate a historical neces¬ fairly general outside the United planned economy that would be sity for the urban core to eke out States. unworkable in an American con¬ its days as a processing station Besides, there is a consensus on text. for the unskilled, the dependent national urban goals pursued by and the abandoned.’ municipal planners that includes Land Use and Planning protection of environmental val¬ The ugly sprawl of our met¬ vidual mobility on the US scale ues, preservation of historical ropolitan communities over their came considerably later, master and cultural monuments, effective surrounding countryside, the can¬ planning and advance land acquisi¬ mass transit systems and the cer of poverty in their urban core tion have always prevented the search for optimum size. Of late and the unrelieved monotony of the situation from getting out of hand. there has been a greater emphasis central business district which Unlike the United States, a goodly on regional planning, recognizing turns at night into a floodlit crime proportion of the well-to-do is that the city cannot be considered statistic have their roots in our re¬ likely to live in the mixed neigh¬ apart from its surroundings and nunciation of direct control over borhoods of the urban core; mixed that the fragmentation of responsi¬ land use. Zoning regulations are re¬ by income and commercial as well bility among separate units of gov¬ lied on as the primary tool to shape as residential land use. Historically ernment is costly and inefficient the free flow of market forces. most workers lived in the suburbs when it comes to carrying out the Land is a finite resource. Except to the point where the very concept plan. Realignment of jurisdictions, for the occasional reclamation of suburb—the “Banlieu” of Paris, amalgamation of small units and project it cannot be replenished for “Vorstadt” of Vienna, “Periferia” assignment of responsibilities to practical purposes and it becomes of Rome—became practically regional councils of government scarcer all the time as population synonymous with “working class have been the roads followed by pressure and economic dev¬ district.” Notwithstanding the cur¬ several European countries to cope elopment drive up demand and rent conventional wisdom that with this problem. This approach prices. The United Nations has es¬ looks at the Amerian city and con¬ has led to an orderly development timated that by 1995 two-thirds of cludes: “Who needs it in an urban of new towns that surround major the world’s population will live in civilization?”, there is nothing in urban centers in a planned way that cities and the larger the city the western experience to substantiate provides for mixed residential/ more rapid its growth. The di¬ a historical necessity for the urban commercial use and a triple tier of mension of the urban land problem core to eke out its days as a proc¬ neighborhood, district and central is put into perspective by the Un¬ essing station for the unskilled, the core clusters. New suburbs do not ited Nations estimate which states dependent and the abandoned. The spill out of the city in a ragged, that each year for the next 30 years record of the world’s major cities haphazard way. A careful combi¬ the equivalent of 86 cities of one beyond our shores points just in the nation of the residential, commer¬ million population would need to opposite direction. cial and cultural uses right down to be built just to handle the normal European governments, and the neighborhood level has suc¬ population increase plus the pres¬ more recently Japan, have consis¬ ceeded in humanizing the suburban ent rate of migration from the coun¬ tently adopted urban policies that environment, particularly in Scan¬ tryside into the city. provide for balanced growth dinavia, Germany and the United Unlike the United States, other brought about by careful planning Kingdom. coordinated on a regional scale. mixed market countries have long Regional Planning recognized the limited supply of Control over land use through ad¬ land and have regulated its use like vance acquisition, tax incentives, The principles of municipal land a public utility. Holding onto con¬ commercial licenses and construc¬ acquisition, coordinated regional trol of urban land either through tion permits is the key element in planning and infrastructure de¬ advance acquisition or through le¬ insuring compliance with plans. velopment through government/ gal mechanisms regulating uses to Besides making certain that de¬ industry cooperation, which have which it could be put, European velopers conform to official plans, proved successful in Europe and local governments could enforce advance acquisition and leasing Japan and have so far been under¬ adherence by private builders and rather than selling land allows the employed in the States, are also the developers to the municipal master community, instead of private in¬ underpinning of Australia’s assem¬ plan for urban growth which is the terests, to benefit from higher land bly of seven new towns that will bible for the city’s own coordinated prices due to urbanization. The radiate out from the capital city of development of mass transport and city of Stockholm, for example, Canberra to form a metropolitan infrastructure. has been buying land since before region of 330,000 by 1981. An European urban centers do not World War 1 and now owns over eventual size of a million by the have the centrifugal problem faced two-thirds of its surrounding area. turn of the century is considered by American communities, lndi- Likewise in the Netherlands, mu¬ possible and provided for. The Au-

FOREIGN SERVICE JOURNAL, February. 1974 17 stralian National Capital De¬ developed countries are troubled one can still find the streets of the velopment Corporation which today by the stress of daily living, iron mongers, food sellers, fish came into being in 1958, when by that sense of boredom and emp¬ wives, carpenters, butchers and Canberra had a population of tiness commonly called alienation. money changers. I understand that 35,000, is a case study in the appli¬ The depersonalized atmosphere of Hanoi provides one of the best- cation of sound planning princi¬ the big city is particularly notice¬ preserved examples of this urban ples. To confirm its belief that able in the United States, where tradition. In Europe, individual es¬ Canberra should grow by an accre¬ human values have often been sac¬ tablishments in these traditional tion of new towns that will retain rificed for efficiency and economy. quarters are often marked by signs options for future development, the Other countries, though generally and symbols that are visually Commission tested several compu¬ headed in the same direction, have stimulating instead of dully uniform ter models built on employment not permitted market forces to dic¬ or “Las Vegas pop." In contrast to distribution, market demand and tate their life styles to the same ex¬ the market place aberrations of travel patterns. What emerged was tent. Quality of life benefits persist “googie” architecture that turns a strategy for a Y-shaped linear de¬ to a considerable degree and their the commercial strip into buildings velopment of towns grouped in retention is the subject of con¬ that look like hamburgers or three corridors radiating from the scious planning. Planners don’t al¬ “Colonel Sanders” flanked by central area, each containing its ways succeed in programing hu¬ signs designed to be read at 60 own employment and activity man values into new projects but mph, most European cities have center with its low-rise single fam¬ they try and their task is often handsome, covered shopping ar¬ ily units planned to optimize traffic somewhat less formidable than in cades with changing floral and shop patterns. Each town is to have a this country where the scale of new window displays that provide vital¬ population in the order of a buildings, shopping centers and ity, diversity and visual excite¬ hundred thousand and the Aus¬ urban renewal sites dwarfs their ment. tralian government will decen¬ human occupants. The phenomenon of urban alien¬ tralize employment into the sub¬ It has been said that communica¬ ation in our large metropolitan centers. The hierarchical pattern tion is the essence of community. areas seems also to be promoted by will ease traffic, be flexible and Unfortunately much of our pres¬ the relative absence of pedestrians promote a feeling of community ent-day architecture discourages in the city as well as in the suburbs. among the residents. At the same communication. Our tall un¬ The great cities of the world have a time it retains a pleasant environ¬ adorned office buildings, window¬ lively street life, their sidewalks, ment and opportunities for an indi¬ less fortresses or glass walls, shut squares and parks are filled with vidual choice of location. out human contact even as they people at night after the commuters The Commission is funded by an pretend it. Monuments to incom¬ have gone home. With no backdrop annual parliamentary appropria¬ municability, they lack the line- of animated street life an urban si¬ tion, has adequate land set aside of-vision architectural variety and lence that is shattered only by in¬ through government action to ac¬ small scale elements to which the sistent patrol car sirens, the whin¬ commodate the current doubling of pedestrian can relate. Located in ing and clanging of ambulances and the population every seven years, the central business districts of our fire engines also contributes to the and it acts as both planning and cities that are deserted at night be¬ general unease in American cities. construction authority. Land is cause of the zoning practices al¬ Some European cities ban au¬ leased to private developers in a ready discussed, these giant struc¬ tomobile horns and police sirens way that retains detailed control tures, often floodlit for security, except for dire emergencies. One over land use. Commission plan¬ assume inhuman, sometimes rarely hears those shrill crisis ners have calculated that at current frightening proportions. They may sounds so typical of the American costs, $50 million in revolving loan have a stark, silent beauty, but city. funds permit outlays of $300 mil¬ their scale is alien to man as a daily Moreover there is the metropoli¬ lion over the next 25 years to ac¬ habitat. Asian capitals are now also tan habit of devouring itself. This commodate increments of 150,000 full of tall office buildings, but a sea constant tearing down and rebuild¬ people each in an environment of people swirls around them. ing of the central business district providing urban and environmental Plenty of humans manage to hu¬ usually with the depersonalized amenities at socially-acceptable manize even an unfriendly envi¬ glass and steel boxes that pass for land prices. Elements of the Can¬ ronment. modern architecture, contribute to berra experience—control over In the older cities of Europe and the general disorientation and land, available funds, a compre¬ Asia, memories of the medieval distress with the pace of change hensive plan and concern for the layout of the city into various quar¬ that Alvin Toffler named “Future environment—are present in the ters, streets and squares devoted to Shock.” The pace of change is metropolitan development deci¬ the different trades persist to this considerably slower in other coun¬ sions of most industrialized coun¬ day through street names, inter¬ tries and more attention is paid to tries and they are directly applica¬ esting spatial arrangements of the preservation of historic build¬ ble to the sound management of squares, half moons and curves, in ings. A city without old buildings is rapidly developing urban com¬ contrast to our rectilinear patterns, like a man without a memory. The munities in the United States. and in the survival of special mar¬ comfort of city dwellers, their ket days and celebrations. This is sense of belonging and continuity The Social Perspective perhaps most pronounced in Asia require that handsome buildings of All urban agglomerations in the where to a greater or lesser degree different epochs reflecting the taste

18 FOREIGN SERVICE JOURNAL, February, 1974 i. FEDERAL INCOME TAXES - Can t r'Jot Cant—

PARTNERS AND STAFF, HURDMAN AND CRANSTOUN, CPAs

“Nobody owes any public duty to which makes it possible to make gifts of end of the customary three-year period pay more than the law demands: taxes securities to minors by providing for a available under the statute of limita¬ are enforced exactions, not voluntary custodian to hold the shares during the tions, the cost could not exceed 18 per contributions. To demand more in the minority of the donees. Income or gain cent of the potential tax saving. The name of morals is mere cant." (Com¬ from the sale of these securities is tax¬ interest is a legitimate deduction for tax missioner v. Newman). This is a fair able income to the donee. Often gifts purposes when paid, so the net cost is summation of the justification for tax are made by persons about to dispose less than 6 per cent per year. It is un¬ avoidance, which is any legitimate of property at a price which would re¬ wise to attempt to deduct something method of holding taxes to a minimum. sult in a large taxable gain. A bona fide that is by long precedent certain to be It must be distinguished from “eva¬ gift of a part interest prior to sale will disallowed. In deciding whether or not sion.” which is willful and wrongful distribute the gain in proportion to the to claim a deduction the tax saving failure to pay taxes, subject to criminal interests held by the donor and donee generated by the deduction must be penalties. In any discussion of tax when the gain is realized. It is possible balanced against the possible cost if the avoidance it is understood that the to make gifts to other than minors and item is disallowed. transaction is carried out in substance of property other than securities. The Some of the more frequent problems as well as form so as to qualify as principle remains the same: distribute covering income, deductions and ad¬ legitimate. income-producing property to a person ministrative matters affecting Foreign The starting point for determining taxed at a lower rate than the donor. If Service personnel are outlined below, your tax is gross income, defined as all giving up permanent control of the primarily in a question-answer format income from whatever source derived. property is not desirable, taxpayers for easier understanding. Given the graduated tax rate schedules may still receive income splitting be¬ DISABILITY ANNUITY NOT IN¬ it quickly becomes clear that taxes may nefits through the use of short-term CLUDED IN GROSS INCOME be saved if a taxpayer in a high bracket trusts. However, the Internal Revenue manages his affairs so that some of his Code (hereinafter IRC) provisions Q. X, a Foreign Service Staff Of¬ income is earned by his lower-bracket concerning trusts contain a labyrinth of ficer, is forced to retire because of a children. The opportunity sometimes traps and pitfalls. Caution should be disability suffered in the course of his arises to conduct operations as a family exercised and competent legal counsel duty. Upon retirement he receives a partnership, corporation, or tax option should be consulted. disability annuity. Does X have to in¬ corporation (which is essentially a cor¬ Once the income items have been ar¬ clude the amounts received under the poration taxed like a partnership); all of ranged, the tax avoidance aspects of annuity in his gross income? which allow the taxpayer to split his deductions should be scrutinized. If A. No. Amounts received from a income among the various members of you itemize your deductions the ques¬ disability annuity payable under the his family. For taxpayers on a salary, tion always arises “is this particular provisions of section 831 of the Foreign opportunity for income splitting still ex¬ item deductible?” In listing question¬ Service Act of 1946, as amended, are ists in the investment income area. able items as deductions, it is well to excludable from income. Variations on the income splitting have an understanding of the tax con¬ method are numerous and rather usual sequences should they not be allowed. DEFERRAL OF TAX WHERE NEW in accomplishing tax minimization. If the point is truly debatable, the tax¬ HOME PURCHASED IS IN FOREIGN Many states and the District of Col¬ payer must decide whether he is willing COUNTRY umbia have adopted a uniform law to assume the calculated risk of disal¬ Q. X, an FSIO, has been residing in lowance. If the taxpayer takes the de¬ his house in D. C. for the past five duction and makes adequate disclosure years. He receives an assignment to Mario P. Borini, CPA, is national tax part¬ of the facts, disallowance does not re¬ Spain for three years. He sells his D. ner; Norman F. Lemnah and Leonard J. sult in grave damage. The taxpayer C. house at a gain and within one year Lauricella, J.D., are national tax staff; and pays the same tax as he would have of that sale he buys a house in Spain for Richard L. Ericsson, CPA, is partner-in¬ paid had he not claimed the deduction, charge of the Washington, D. C. office. Mr. slightly more than the amount he re¬ Ericsson served as the Department’s first plus interest on the deficiency at 6 per ceived for his D. C. house. Will X have Chief Internal Auditor and has been a cent per year. Assuming that the as¬ to pay a capital gains tax on the sale of member of AFSA for more than 15 years. sessment is made somewhere near the the house? FOREIGN SERVICE JOURNAL, February, 1974 19 A. No. X can defer the gain on the separately. FSO if he itemizes. Another IRS Rul¬ sale of the house even though the new If M in the above example married a ing provides a deduction for ordinary residence is in a foreign country. The US citizen, her share of the community and necessary expenses in the only requirements for complete defer¬ income would be taxable. performance of duties as an FSO even ral of the gain are: (1) the house sold if such expenses would not be reim¬ was the taxpayer’s principal residence; NON-RESIDENT ALIEN WIFE bursed. (2) the new home must be purchased TAKES HER DOMICILE FROM HER during the period beginning one year HUSBAND DEDUCTION BY FSO FOR TRAVEL before and ending one year after the Q. X. an FSIO, was domiciled in a EXPENSE OF HIS WIFE WHO AC¬ sale of the old home; and (3) the cost of non-community property state prior to COMPANIED HIM ON HIS BUSINESS the new residence equals or exceeds his assignment overseas. On January 1, TRAVEL the adjusted sales price of the old resi¬ 1973, he married Y, a resident of a Q. X, an FSO, is required to do dence. Gain on the sale of the old resi¬ community property country to which some traveling away from his tax dence would only be recognized to the X was assigned. May X exclude Vi of home. His wife, W. accompanies him. extent that the adjusted sales price ex¬ his income in filing his 1973 tax return His wife has a considerable amount of ceeds the cost of the new residence. If on the basis that his wife, Y. is experience and background with the taxpayer constructs his new home the domiciled in a community property Foreign Service. 1'he trip schedule is replacement period extends to eighteen country and is entitled to Vi of his in¬ very tight and not conducive to sight¬ months after the sale of the old resi¬ come? seeing or suited to a vacation purpose. dence as long as construction com¬ A. No. X may not exclude Vi of his W. by performing numerous incidental mences within one year after the old income from his 1973 tax return, but tasks, freed her husband to devote residence is sold. Note that the basis of rather must include his entire income more of his time to substantive duties. the new residence generally will be its and may claim an exemption for his By contact with families of other cost, reduced by any gain not recog¬ non-resident alien wife, Y. The FSOs, W is able to relate to X impor¬ nized on the sale of the old residence. domicile of a husband fixes the tant information he might not otherwise domicile of the wife. Because the hus¬ observe. EXCLUSION OF EARNINGS band is domiciled in a non-community A. Under similar circumstances the Q. S, an FSR, was physically pres¬ property state, the exclusion is not ap¬ US Court of Appeals for the Eighth ent in a foreign country from June 30, plicable. Circuit has upheld a deduction for the 1972, until January 4, 1974. During travel expenses of the wife. 1973 he received $1,000 for lectures EMPLOYEE BUSINESS EXPENSES given at a university in the foreign Q. B, an FSO, incurs representation MOVING EXPENSES country. May S exclude the $1,000 expenses of $500 in the performance of Q. The moving expense deduction from his 1973 Federal income tax re¬ his duties. He is reimbursed $100. B allowed employees was changed by the turn? gets a certificate by the Secretary or a Tax Reform Act of 1969. What Moving A. Yes. Since the income represents designee that $300 of the unreimbursed Expenses Are Now Deductible? earnings from personal services ren¬ expenses would be properly reimburs¬ A. Moving expenses may be de¬ dered outside US, S was physically able under the Foreign Service Act of ducted provided two conditions are present in a foreign country for at least 1946 if sufficient funds existed. The met. The first requirement is that the 510 days during a period of 18 consecu¬ remaining $100 B spent for ordinary distance from the new place of work to tive months, income was paid to him and necessary expenses in the the old residence must exceed by fifty not later than the year after which the performance of his duty as an FSO but miles the distance between the old re¬ services were performed, and payment these expenses (such as printing and sidence and the old place of work. The was not made by the US Government engraving) were specifically made second requirement is that the taxpayer or an agency thereof, he may exclude non-reimbursable by State Department must be a fulltime employee in his new up to $20,000 of earnings under Section Regulations. B also incurs $50 in ex¬ principal place of work (not necessarily 911 IRC. However, salary income of penses for the use of his private au¬ with the same employer) for 39 weeks employees received from the US Gov¬ tomobile on official business for which during the 12 months immediately fol¬ ernment is fully taxable even though he is not reimbursed. How should lowing his arrival in the new area. Both the services are performed in a foreign these items be treated by B in filing his time periods are measured from termi¬ country. tax return? nation of taxpayer’s last trip to the gen¬ A. B should include his unreim¬ eral location of his principal place of EXCLUSION FOR ONE-HALF OF bursed employee business expenses on work before beginning work on a regu¬ NON-RESIDENT ALIEN WIFE’S Form 2106. Expenses which may be lar basis. SHARE OF COMMUNITY PROP¬ listed in Part I of Form 2106 are travel If taxpayer meets the above re¬ ERTY INCOME expenses while away from home and quirements then the following expenses Q. M, an FSO, is domiciled in a transportation expenses (but not com¬ may be deducted: community property state. He is muting to and from work). B's $50 for 1. The cost of moving household stationed in Europe for all of calendar use of his personal automobile would goods and personal effects from the year 1973. During the year M married a qualify for inclusion in Part I, whether former residence to the new residence: non-resident alien who did not at any B takes the standard deduction or included here are packing, crating and time reside in the United States. How itemizes his deductions. in-transit storage, and insurance for all should M and his wife, W, file their Representation expenses and all goods and effects of taxpayer and any 1973 tax returns? other employee business expenses not member of his household. If goods are A. M should report Vi of his income qualifying for Part I should be listed in shipped from places other than the old on his tax return. W is not subject to Part II and may be deducted only if B residence, those expenses will be al¬ tax on her Vi of the community income. itemizes his deductions. If B itemizes lowed only to the extent they do not W should file a Form 1040NR to obtain he may deduct the entire $400 in Part exceed the expense that would have a refund of tax withheld on her share of II. IRS has ruled that representation been incurred had the goods been the income. M and W may not file a expenses in excess of reimbursements shipped from the old residence. The joint return since W was a non-resident that are supported by a certificate re¬ reasonable expense of moving the alien so M must file as married, filing ferred to above are deductible by an taxpayer’s personal automobile to the

20 FOREIGN SERVICE JOURNAL, February, 1974 new place of residence also qualifies, commissions, attorney’s fees, title remaining useful life of at least three f or post-1969 years taxpayer may also fees, escrow fees, appraisal fees, points years. If J purchases new appliances deduct costs of connecting or discon¬ or loan placement charges the seller is which he will rent with the house. J necting utilities required because of the required to pay, state transfer taxes may take accelerated depreciation on moving of household goods, appliances and other similar expenses, but not them if they have a remaining useful or personal effects. Expenses of storing fixing-up expenses for the old house. life of at least three years. If the ap¬ and insuring houseshold goods and Expenses incident to the settlement pliance has a remaining useful life of at personal effects are deductible if of an unexpired lease held by taxpayer least six years or more at acquisition. J incurred within any consecutive 30-day on his former residence include consid¬ will be entitled to “additional first year period after the day they are moved eration paid to a lessor to obtain a re¬ depreciation" of 20 per cent of the cost from the former residence and prior to lease from the lease, attorney’s fees, of the new appliance (up to a maximum delivery at the new residence. real estate commissions, or any similar depreciation deduction of $2,000 on an 2. The cost of traveling (including expenses incident to obtain a release individual return and $4,000 on a joint meals and lodging) from the former res¬ from a lease or to obtaining an assignee return). idence to the new place of residence: or sublessee such as the difference be¬ J should be aware that if he takes ac¬ included jn this category are the ex¬ tween rent paid under a primary lease celerated depreciation he may be sub¬ penditures for transportation, meals and rent received under a sublease. ject to ordinary income recapture at and lodging incurred enroute from the Expenses incident to the acquisition of sale of the house and furniture. Also, old residence to the new residence by a lease include commissions paid to ob¬ the excess of accelerated depreciation the taxpayer and members of his tain a lease, sublease, or assignment of over straight line depreciation on realty household. including expenses an interest in property used as the new is an item of tax preference on which a incurred on the date of arrival. These residence. minimum tax of 10 per cent will be traveling expenses are allowed for only Qualified real estate expenses do not paid. There is an exclusion for the first one trip, but it is not necessary that the include any losses on disposition of $30,000 of preference items plus the taxpayer travel with the members of his property or mortgage penalties which amount of income tax paid for the year. household. Travel expenses include may be deducted as interest if you The mere fact that J tries but is un¬ the use of taxpayer’s own automobile itemize your deductions. able to rent his house will not prevent for transportation between the old and For categories 1 and 2 above, there is him from taking the depreciation de¬ new residences. Taxpayer may deduct no dollar limitation. The sum of duction. out-of-pocket expenses (he must keep categories 3 and 4 (residence hunting records) or he may deduct 6 cents a expenses plus temporary living ex¬ AUTOMATIC TWO MONTH EXTEN¬ mile for auto travel in taxable years penses) may not exceed $1,000 for any SION FOR U.S. CITIZENS RESIDING after 1969. one move. The total deduction for ABROAD Also deductible are the indirect mov¬ categories 3. 4 and 5 above cannot ex¬ Q. G, a Foreign Service Staff em¬ ing expenses listed below. Three tests ceed" $2,500. ployee. is stationed abroad during must be met for deduction: taxpayer calendar year 1973. G is a cash basis must have already obtained employ¬ DEPRECIATION DEDUCTION FOR taxpayer and files his returns on a ment at the new place of work before RENTING FSSO'S HOUSE WHILE calendar year. What is the last filing the trip is begun; taxpayer must travel date for his 1973 tax return? from his former residence to the gen¬ HE IS STATIONED ABROAD Q. J, an FSSO living in a house in A. Normally, June 15, 1974. An eral location of the new principal place American citizen residing outside the of work and return to the former resi¬ 19. C., is assigned overseas for a two year tour. During that period J rents his US and Puerto Rico is granted an au¬ dence: and the principal purpose of the tomatic extension up to the 15th day of trip must be to search for a new resi¬ furnished home. Where should J report his rental income and expenses and the 6th month following the close of the dence. taxable year for filing his return. A 3. Cssts of traveling (including how should .1 compute his depreciation for the house and furniture? Suppose .1 statement must be attached to the re¬ meals and lodging), after obtaining em¬ turn showing that the person for whom ployment. from the former residence to tries to rent his home but is unsuccess¬ ful in obtaining a tenant. May .1 still de¬ the return is made qualifies under this the general location of the new princi¬ section. Interest at 6 per cent will have pal place of work and return, for the preciate the house and furniture? A. J should report rental income and to be paid on the amount of tax due principal purpose of searching for a from April 15th until June 15. but that new residence: the intent here is solely expenses on Schedule R which he interest will be an itemized deduction to allow a deduction for house-hunting should attach to his Form 1040. The for the following year so the actual ef¬ trips after employment has been se¬ question of depreciation on the house fect of the interest will be less than 6 cured. and only house-hunting trip ex¬ will depend on: when the house was percent. Note that since June 15. 1974 penses may be deducted under this sec¬ built, when .1 acquired it. the fair mar¬ falls on a Saturday, G will have until tion. ket value of the house at the time of June 17 to file, with corresponding in¬ 4. Costs of meals and lodging while conversion, and the remaining esti¬ terest to that date. occupying temporary quarters in the mated useful life of the house. No general location of the new principal specific answer may be given on the HOME LEAVE place of work during any period of 30 above facts except to suggest that ac¬ consecutive days after obtaining emp¬ celerated depreciation is a possibility The status of the Home Leave de¬ loyment: only meals and lodging may depending upon the answer to the duction. for travel, meals, and lodging, be deducted. Thus entertainment, above questions. The furniture may be has changed but not enough. The laundry, transportation or other per¬ depreciated and accelerated deprecia¬ Stratton case from the U. S. Court of sonal living expenses are not deducti¬ tion is possible depending again on Appeals for the Ninth Circuit, is still ble under this section. Taxpayer may when the property was acquired and its good law. the Supreme Court having choose whatever 30-day period he remaining useful life. If J makes im¬ denied the Government’s request for wishes. provements to the house such as a new certiorari. The IRS Commissioner re¬ 5. Costs constituting qualified resi¬ roof to make it more attractive to pro¬ fuses to follow Stratton outside of the dence sale, purchase or lease expenses; spective renters, these capital im¬ Ninth Circuit, and even in the Ninth expenses incident to the purchase or provements may be depreciated at an Circuit only the expenses of the tax¬ sale of the house include real estate accelerated rate provided they have a payer himself have been allowed.

FOREIGN SERVICE JOURNAL, February, 1974 21 Last year this column reported the deductible if a US organization con¬ A. No. An individual, in order to success encountered by an AFSA trols the use of the funds by the foreign qualify as a dependent, must be a citi¬ member who appealed this issue to the organization or if the foreign organiza¬ zen or resident or National of the US Small Claims Division of the Tax tion is merely an administrative arm of or a resident of the Canal Zone, the Court. IRS decided not to contest the the US organization. While G and K Republic of Panama, Canada, or Mex¬ issue in the Smith Claims Division. may not take a deduction for the value ico, at some time during the calendar There have been some changes since of the services rendered by K. they year in which the taxable year of the last year in the Tax Court. The Small may deduct their out-of-pocket ex¬ taxpayer begins. Since X's mother is Claims Division will now hear tax de¬ penses incurred for the benefit of char¬ not a US citizen, she must be a resident ficiencies up to $1,500. Form 2 is the ity. Thus, expenses incurred in the op¬ of the United States or one of the new Petition Form for Small Tax eration of the car such as oil and gas above mentioned areas at some time Cases, obtainable by mail from the may be deducted, or in the alternative during X's taxable year or the depen¬ Clerk of the Court, United States Tax they may deduct 6 cents per mile. dency deduction is not allowed. This Court, Box 70, Washington, D. C. same logic applies to a mother-in-law. 20044. Your argument should be based CONTRIBUTIONS TO FOREIGN on Stratton r. Comm. 448 F.2nd 1030 ORGANIZATIONS APPELLATE RIGHTS (USCA 9. 1971). If you desire consid¬ Q. H, an FSO, joined a foreign FS employees have the same rights eration of your case by the Small church at his foreign post of duty and of appeal from proposed or actual Claims Division, your petition, ac¬ made a $1,000 contribution to the changes in their tax liability as do tax¬ companied by a $10 filing fee, must be church in 1973. May H deduct the con¬ payers in the United States. The first filed with the aforesaid Clerk of the tribution on his 1973 Federal income appeal is from the adjustment proposed Court within 90 days (150 days if the tax return? by the IRS officer who examines the notice is addressed to a person outside A. No. Contributions made directly return. The appeal is before a District the US) after the notice of deficiency is to a foreign church or other charitable Conferee, if held in the United States, mailed. organization are not deductible, except and before a conferee of the Office of for certain Canadian organizations. International Operations if held at an FOREIGN TAXES IRS overseas post. In the past, the Q. What foreign taxes may be de¬ WHERE TO FILE RETURN conferee’s determination was made ducted? Q. Where should foreign service solely on the facts and application of A. Real property taxes imposed by a employees file their returns? law, regulations, revenue rulings and foreign country are deductible on A. United States citizens with court cases to such facts. However, Schedule A if deductions are itemized. foreign addresses (except APO and conferees were recently authorized by Other foreign taxes such as personal FPO) and those excluding income the Commissioner of Internal Revenue property, sales and gasoline taxes are under Sec. 911 (Earned income from to settle cases involving $2,500 or less deductible only if they are incurred in a sources without the US) and Sec. 931 in proposed tax deficiencies by consid¬ trade or business (for example unreim¬ (Income from sources within posses¬ ering litigation hazards. This new au¬ bursed employee business expenses) or sions of the US) should file with the thority will now benefit FS employees in the production of income. If a Internal Revenue Service Center, because they may be able to settle their foreign country imposes income taxes 11601 Roosevelt Blvd., Philadelphia, tax cases under $2,500 overseas, alternative treatment is available. The Pennsylvania 19155. Taxpayers with whereas previously it was necessary to foreign income tax may be taken as a APO and FPO addresses should file appear before an Appellate Division credit against US tax liability, or it may with the Internal Revenue Service office in the US to settle their cases. be deducted as an itemized deduction Center for their home state. Taxpayers Consequently, many Foreign Service on Schedule A. required to file a Form 1040NR (for employees were unable to exercise Instructions for computing the credit non-resident aliens) should file at the their Appellate rights because the ex¬ may be found on Form 1116. If you above Philadelphia address. pense of a hearing in US was prohibi¬ select the tax credit you may not use tive in comparison with the amount of the standard deduction and the credit is CAPITAL ASSET TREATMENT FOR the tax deficiency. However, if the tax subject to overall and per-country limi¬ FOREIGN CURRENCY deficiency is over $2,500, Foreign Ser¬ tations. You should figure your tax A recent Revenue Ruling involved a vice employees still have a right to a under both the credit and the itemized US citizen, not a dealer in foreign cur¬ hearing before a representative of the deduction methods and choose the rency, traveling in a foreign country Appellate Division in the US and gen¬ more favorable one. who converted US dollars to that erally, the hearing can be scheduled country’s currency for his personal when the taxpayer is on home leave. CONTRIBUTIONS TO A FOREIGN use. At the conclusion of his stay he BRANCH OF A US ORGANIZATION reconverted the foreign currency to CONCLUSION Q. G, an FSIO, made a contribution dollars. While he was in the foreign In writing this article we have at¬ of $500 to a religious missionary or¬ country the value of that country’s cur¬ tempted to highlight some of the areas ganization at his foreign post of duty, rency changed. IRS held that any gain of interest to members of the Foreign which organization was completely or loss realized on conversion is a capi¬ Service. If you have further questions under the control of a US religious or¬ tal gain or loss. Presumably adequate or are in need of assistance in preparing ganization. May G deduct the $500 records would have to be kept to sub¬ your income tax return, you may con¬ contribution on his 1973 Federal in¬ stantiate the loss. tact the IRS in person or by mail at come tax return? In addition, G’s wife, their offices in Bonn, Rome, Tokyo, K, donates one day a week of her time DEPENDENCY DEDUCTION FOR Paris, Ottawa, Manila, London, Sao to the organization during which she NON-RESIDENT ALIEN MOTHER Paulo and Mexico City. The offices are uses the family car to benefit the or¬ OF FSO located in the US embassies except in ganization. May G and K claim a Q. X, an FSO, has a non-resident Sao Paulo where the office is located in charitable deduction for K's services? alien mother whom X completely sup¬ the Consulate General’s office. During A. G and K may deduct $500 for ports in his home in Europe. Is X enti¬ the tax season, forms and instruction their cash contribution. Contributions tled to a dependency deduction on his sheets may be obtained from US em¬ to a charitable foreign organization are Federal income tax for his mother? bassies and consulates abroad. 22 FOREIGN SERVICE JOURNAL, February, 1974 and culture of their day be pre¬ The automobile that started as a first-class restaurant. The frequent served. They form an umbilical luxury, then became a necessity, interaction of people promoted by cord with the past. The Kremlin is has now turned into an obstacle this spatial combination helps deal a history of Russia in stone and to the city dweller’s enjoyment with the boredom and monotony owes its eminence to the fact that it of his environment in the met¬ associated wtih life in the suburbs. Some high-rise apartment com¬ includes a building from each cen¬ ropolitan areas of the indus¬ plexes in European downtowns tury beginning with the 15th. Con¬ trialized world. sidered as a part of this historical and new towns encourage social progression even the glass facade contact among tenants for the same of the Soviet Palace of Congresses other hand, this sort of activity is a reason. No actual “Street in the built in the 1960s becomes accept¬ vital part of the shopping scene. In Sky” advocated by avant-garde able. Old buildings preserved with the towns surrounding Stockholm town planners has come to the at¬ care have a charm of their own, even the food supermarkets lo¬ tention of this writer but there are they lend flavor and character to cated inside an attractive covered at least six apartment houses in the entire city. Vienna and Stock¬ arcade have second floor snack Stockholm with a communal res¬ holm, Paris and London, to cite bars and coffee shops with chairs taurant, catering and club facilities just a few, have carefully preserved and tables along the railing to for the working couples and sin¬ entire quarters that celebrate the watch shoppers and displays below gles, among them a large propor¬ past without neglecting the pres¬ while taking a break from one’s tion of single parents, who form the ent. Some American cities on the own daily expedition to the com¬ bulk of the tenants. The tenant other hand have “modernized” mercial center. This kind of committees who run Moscow’s handsome old buildings, defacing thoughtful architectural gesture, cooperative (owner-occupied) them with huge signs and false also present in sidewalk cafes, re¬ apartment houses also promote fronts where they haven’t been lieves boredom and tired feet and cordial relations among residents. mercifully razed to the ground. recognizes what we do not, that A club room used for committee Trees like buildings impart char¬ “people-watching” is a healthy meetings is provided in each com¬ acter to the city and oxygen be¬ sport that relieves tension. plex and a common social area is sides. They soften the harsh lines Still on the subject of shopping, often fixed up by the tenants them¬ of modern buildings and permit the European new towns generally selves on the elevator lobby on city dweller to glimpse the rhythm have adopted a size and shape of each floor. A somewhat similar ar¬ of nature in his artificial environ¬ neighborhoods to retain the amen¬ rangement obtains in some Ja¬ ment. Too often trees have been ity of the corner newsstand, gro¬ panese centers. eliminated on our shopping streets cery store, butcher and baker who The Taming of the Car for the convenience of traffic or can be reached on foot along plea¬ made to eke out a scrawny exis¬ sant walkways. Schools are also Our bulging cities are faced with tence amidst the wall-to-wall con¬ within walking distance. This ar¬ unprecedented traffic congestion crete of our downtown shopping rangement not only limits the and pollution because of the relent¬ malls. European towns carefully number of trips out of the neigh¬ less increase in the number of pri¬ plan in the greenery. Some of borhood to satisfy daily needs, it vate vehicles circulating and at¬ Rome’s most elegant shopping gives neighbors an opportunity to tempting to park in the downtown streets, closed recently to vehicu¬ meet and talk with each other. area. The automobile that started lar traffic, now have potted flower¬ Tapiola, Finland, for instance, has as a luxury, then became a neces¬ ing trees in huge straw baskets that been planned in such a way that no sity, has now turned into an obsta¬ provide color and shade for the resident has to walk or push a baby cle to the city dweller’s enjoyment strolling pedestrians; the glass- carriage more than 250 meters to of his environment in the met¬ domed shopping arcades in major reach a desired shop. Suburbs ropolitan areas of the industrialized Benelux, German and Swiss cities around Stockholm are planned in world. Losing patronage to the pri¬ put flowering bushes and potted the same way and the Moscow vate car, urban transit in the US plants, changing them with the sea¬ master plan mentioned earlier has registered an 85 percent decline sons, throughout the walking area foresees the triple tier of retail out¬ in usage since the early ’50s. Re¬ to brighten the well-tended store¬ lets, schools and cultural centers lated to this distortion of the traffic fronts and show windows. It is a that characterizes this arrange¬ pattern that has choked the central pleasure to window-shop, whereas ment. There are neighborhood out¬ city with private vehicles has been much of the pleasure of window¬ lets satisfying basic needs, the dis¬ the steady deterioration of public shopping and therefore of strolling trict center where somewhat more transit services for inner city resi¬ has gone out of our central busi¬ extensive versions are present to¬ dents. The urban poor who depend ness district. Some of our large de¬ gether with goods and services not on public transportation have partment stores used to have bal¬ found in the neighborhood such as found themselves increasingly conies with chairs for tired shop¬ small restaurants, taverns, branch immobilized and isolated from the pers to sip tea and watch the bus¬ libraries. The third level at the fast-growing suburbs. tling scene below. It was true town center also repeats and adds Massive efforts are now under urban entertainment, all the more the entertainment and cultural in¬ way to build, improve and revive needed as the downtown gets stitutions. The center of the me¬ public transportation systems in stilled with cars and concrete, but tropolis itself is intended for spe¬ major metropolitan areas and there it seems to have gone out of fashion cial, occasional trips to take in a is a growing reluctance to permit in this country. In Sweden, on the major cultural event or dine at a Continued on pttge 32

FOREIGN SERVICE JOURNAL, February, 1974 “An honest and sophisticated lar culture of their bureaucracy—to several private European relief cliency—as a sensitive apprecia¬ defend or at least acquiesce in groups. tion of other societies—is the those views. Ensnared in a pa¬ There were disputes in Washing¬ rochial view of the national in¬ ton over whether the US should heart of diplomacy.” terest, some officials come to resist play an intermediary role in trying almost instinctively any policy that to end the conflict, but no apparent threatens to rub the client regimes question that the United States they deal with the wrong way. The should make some humanitarian results of this “cliency,” which response to the starving children of makes diplomats align their in¬ the Nigerian civil war. Or so it terests with those of their hosts, seemed. In the United States em¬ are sometimes absurd, sometimes bassy in Lagos, ardently commit¬ tragic. ted to its Nigerian clients, it was a Cliency has become a major oc¬ different world. cupational disease of modern Only weeks after the outbreak of American diplomacy. Although the war, the wife of an American many American diplomats refuse embassy official in Lagos startled to yield to its impulse, even at the her Nigerian dinner guests with a expense of their careers, cliency in¬ toast to “the destruction of Bi¬ fluences much of what the United afra.” When numberless Biafran States does or does not do in the children, dying of protein • defi¬ world—from its failure to speak out ciency, their hair turned rust color, Clientism against genocide in Africa to the became symbols to the world of the multiple tragedies of Vietnam. And war’s wanton suffering, United it has taken a heavy toll on States embassy officers in Lagos government—in honesty and ob¬ somberly explained to visitors that in the jectivity, in time and energy sapped the clever rebels had found an ob¬ by bureaucratic conflict, in ideal¬ scure red-haired tribe, starved its ism, in enormous human costs infants, and put them on display. Foreign abroad that might have been les¬ The mission’s zeal was not al¬ sened, and in the further erosion of ways so overt. Sources that served public trust in foreign policy. in the Lagos embassy during the early months of the war recall a The Red-Headed League Service pervasive suspicion in the form of In the summer of 1967, after a official restrictions on the contacts sequence of political intrigues and of junior officers lest they acquire ROGER MORRIS tribal massacres, civil war broke rebel sympathies. Officials tell of out between Nigeria and its seces¬ recurrent attempts to alter or al¬ “Tell Madame Gandhi how sionist Eastern Region, which be¬ together suppress reports to lucky she is,” Lyndon Johnson came Biafra. When Biafra col¬ Washington unfavorable to Ni¬ called after a startled Indian am¬ lapsed more than two years later, geria, including eyewitness ac¬ bassador as he left a White House hundreds of thousands were dead, counts of Nigerian atrocities. Dis¬ meeting in 1968. “She’s got two the vast majority from starvation sent, according to many accounts, ambassadors workin’ for her . . . caused when Nigeria blockaded was severely punished by unfavor¬ you here and Bowles out there.” rebel-held territory. The war was able performance ratings. Not that the President doubted essentially a battle for power be¬ There was visible irritation with the national loyalty of Chester tween post-colonial elites. Neither the embassy back in Washington, Bowles or the US embassy in side would subordinate its political where Nigerian policy was guided India. But the Johnson sarcasm, an or military goals to relieve the by career officers who had served epitaph on years of bureaucratic enormous human cost. in the country earlier. Letters, then battles, struck at a complex prob¬ Under both Presidents Johnson official visitors, were sent to urge lem in the bureaucratic politics of and Nixon, United States policy more complete reporting. One foreign policy. toward the conflict was a combina¬ source recalls that the CIA even Charged to understand and in¬ tion of political neutrality, includ¬ sent an investigator to, Lagos to terpret the views of other govern¬ ing an arms embargo, and a major discover why the embassy’s intel¬ ments, US diplomats are some¬ commitment, over $100 million, to ligence was so different from all times drawn on by career or the international relief efforts op¬ accounts of the war in the media conviction—by the peculiarly insu- erating on both sides. Behind the and from other governments. But relief policy was an extraordinary those efforts soon gave way to a

Roger Morris, who has worked in the State outpouring of public concern and weary resignation and State’s own Department and National Security Council bipartisan congressional support growing reluctance to offend vic¬ staff and as a legislative assistant in the across the political spectrum. All torious Nigeria as Biafra’s collapse Senate, is writing a hook about humani¬ the major American religious relief became imminent. tarian problems in foreign policy. agencies were involved in aiding To the end, the Lagos mission Copyright THE WASHINGTON MONTHLY. Biafra, along with the International resisted the awful reality of Reprinted with permission. Committee of the Red Cross and Biafra's starvation, refusing to 24 FOREIGN SERVICE JOURNAL, February, 1974 support the presentation by Ni¬ weapons in 1967 found no reason at tragedy, a ranking State Depart¬ gerian relief authorities of vital sci¬ all to recommend withholding food ment officer remarked: “My regret entific data on the famine de¬ aid as a means of persuading a is that there was such emotion gen¬ veloped by US public health ex¬ venal Indian bureaucracy to sus¬ erated in this country . . . today we perts. Convinced that the public, tain long-overdue agricultural re¬ have strained relations with one Congress, the White House, and forms. This and other disputes be¬ fifth of Africa because of the focus the State Department were either tween the mission and Washington, on relief. ...” For that official and duped by Biafran propaganda or leaving President Johnson to doubt others in the State Department’s else were conspiring to dismember if he had an ambassador to India, regional bureaus, relations smooth an important client, the Lagos em¬ illustrate the pernicious character or strained with an entire region bassy largely followed its own of cliency. can be the daily reality of work, foreign policy for the duration of Chester Bowles was then on his much as one client government can the war. second tour as ambassador in absorb the allegiance of an em¬ Delhi. An early casualty of the bassy abroad. The hungry children Our Friends the Enemy Washington bureaucracy under come and go from public sight; the Cliency is seldom so bizarre or President Kennedy, he was to clients are always there. Staffed concentrated as the Lagos exam¬ prove the most humane policy¬ predominantly by Foreign Service ple. More often, missions inflict maker of the glittering lot. In his officers bearing career pressures their bias through long battles of earlier experience in Congress and and marked by a parochialism simi¬ bureaucratic attrition. And no¬ the executive branch, Bowles had lar to that felt abroad, the Depart¬ where have the campaigns been observed the anti-Indian prejudice ment often sees its role as protect¬ longer than on the South Asian that dominated parts of the gov¬ ing its clients from the special subcontinent, where India and ernment. To his New Delhi ap¬ perils that American democracy Pakistan—and the United States pointment, say several sources, holds for traditional diplomacy— embassies in each country—are Bowles brought an abiding deter¬ public naivete (“emotion” over historic rivals. mination to shield US-Indian re¬ Biafra), a meddling press, an unin¬ “We need a modem tank here. lations from the biases experi¬ formed or partisan Congress. You know what the enemy has.” enced. Former aides say Bowles Has cliency kept us from inter¬ The speaker was a United States was often privately frustrated with vening as often as we should? Not military attache talking to a visitor the Indians but usually concealed necessarily, for cliency distorts the to Pakistan in 1967. It wasn’t the his criticism in reporting to way we make decisions more than American embassy that needed Washington in the belief that long- it imposes any clear direction on modern armor, but the Pakistani run United States interests in India our foreign policy. We may disa¬ Army; the “enemy,” of course, were more important than any gree about whether or how the US was India. Some months later, an single clash that might resurrect old should ever intervene in cases of equally earnest Air Force attache hostilities. starvation, slaughter, or rebellion, used home leave in Washington to Unlike his Lagos counterparts, but we should be able to agree to warn a White House aide “unoffi¬ Bowles was not imagining an¬ make those policy choices with all cially” that he believed the tagonism in Washington. Congres¬ the logic and clear-headedness we “enemy” was “up to something” sional distaste for India’s neutrality can muster. around Kashmir. This time the was clear. LBJ and Dean Rusk fell The State Department is not “enemy” was Pakistan. into annual rages when Madame alone in steering our foreign rela¬ Frequently, the United States Gandhi sent birthday cables to Ho tions around obstacles to clear missions in both countries seem to Chi Minh. “How long can you kick thought. The Pentagon, CIA, have believed there were also “en¬ a cow in the udders and still expect AID, Commerce, Treasury, Ag¬ emies” in Washington—the New it to give milk?” Rusk once asked riculture all crowd upon the scene Delhi mission when the United with Georgian earthiness in an in Washington and abroad with States began to arm Pakistan in the “eyes only” telegram to Bowles. programs, bureaucratic preroga¬ early fifties, and Rawalpindi when Bowles must have felt the same tives, various clear-cut views of the congressional pressure forced a way himself at times, and if only he national interest, and, of course, United States arms embargo had posed that same question to foreign clients. Added to the per¬ against Pakistan during the 1965 Washington, he might have been sonal stake and convictions of war with India, and more perma¬ taken more seriously by other career officers there is a host of nently in 1967. Almost as soon as policy-makers. As it was, his be¬ other concerns (domestic clients) the 1967 decision was made, the leaguered, self-righteous cliency that may put a premium on access United States embassy in Pakistan tended to provoke the very forces with foreign regimes—from the urged our government to circum¬ in Washington he hoped to disarm. munitions industry to Iowa farmers vent the embargo by selling the After reading the cables from Delhi to ITT and Wall Street. To busi¬ Pakistanis United States-made and hearing in person Bowles’s ness or bureaucracy trail lines of tanks from some third country. spirited defense of the Indians, interest from nearly every corner This device, predictably enough, LBJ seems to have become con¬ of the world, at once an index of was anathema to the American vinced that if he didn’t insist on In¬ our colossal power yet a mass of embassy in India. dian reforms, his embassy never potential inhibitions on the inde¬ But the same mission in New would. And whatever the merits of pendent and principled use of that Delhi which saw the wisdom of de¬ the issue, he was probably right. power. nying Pakistani generals their Looking back on the Biafran The extreme example of the in- FOREION SERVICE JOURNAL, February, 1974 25 terplay of bureaucracy and cliency, they are unlike all their colleagues environmental matters, refugees, as of much else, is obviously Viet¬ except, perhaps, those in South or population control may create nam. In a sense, it was a return to Africa. The Russian attitude may an organizational illusion of author¬ the medieval practice of cliency. A all be changing, however, with the ity, but none acts without the veto country can do no more for its latest detente. One wonders what of the regional bureaus, whose client states, after all, than fight new clients we may acquire when clients generally frown on such their wars for them. But to the Chase Manhattan invests in Si¬ concerns. bureaucracies in Washington and beria. The assistant legal advisor who their proconsuls in Saigon, the war Cliency seems both a cause and wrote the unheeded memorandum was often only another arena for effect of the larger malaise envelop¬ on human rights during the mur¬ the jousting of power and interests. ing the State Department and ders in Burundi personally carried “They could accept more easily a Foreign Service. Controlling its a copy to each policy-maker in the complete reversal of objectives or abuses probably begins with the African bureau, skeptical that it grand strategic design than a revi¬ long-needed reform of that bu¬ would ever reach them by regular sion of their own roles,” reflected a reaucracy. staff channels. At the time, how¬ veteran of the bureaucratic battles It flourishes, like other dubious ever, the legal advisor’s office was both in Washington and Saigon. practices, in the guild mentality of never asked to prepare an opinion Behind the lines and sometimes the State Department, in an elabo¬ on whether events in Burundi con¬ on them were the endless jurisdic¬ rate career system that rewards stituted a violation of human rights. tional disputes—CIA operatives, caution, compliance, and evasion Moreover, career officers who are generals, deputy ambassadors, while punishing dissent or “mis¬ assigned to clientless duties like AID administrators, each with takes.” In an environment where legal affairs know that the promo¬ Vietnamese clients on whom he advance depends on conforming to tion system of the Foreign Service was somehow dependent for suc- habit, it is perhaps the most com¬ follows bureaucratic power, and ,cess, each suspicious that his col¬ mon habit of all. that it rarely rewards such “margi¬ leagues would expand their domain Cliency seems almost inherent in nal” work. “Did you ever know and advance their clients at his ex¬ the psychology and sociology of any official,” asked a young dip¬ pense. The war, to be sure, was diplomatic work abroad. The lomat, “whose career has been ad¬ more complex than this single di¬ British used to mourn the victims vanced because he spoke out for mension. But the dishonesty, the of this parochialism as being “too human rights?” zeal, the secrecy, the ambitions long in the East.” State Depart¬ Bureaucratic and career interests and fears that drove us on belong in ment desk officers now call it reinforce this sense of priorities. If large measure to such bureaucratic “localitis,” certain that it afflicts there is direct official involvement politics. only their colleagues in the “field.” with the country, such as an aid Cliency-in-Waiting The malady probably begins program or arms sales, there may with the need to rationalize against naturally develop close working re¬ The most dependable clients for the realities of foreign service, lationships with the recipients. all these purposes are not always whatever the venue. While Henry Some individual careers and bu¬ actually in power. But subtle inter¬ Kissinger flits dramatically from reaucratic prestige become inevit¬ vention, a kind of cliency-in- Georgetown to Peking, most ably linked to the “success” of waiting, can help put them there. American diplomats in a hundred programs which, in turn, may de¬ Indonesia and Chile are cases in other capitals are locked in tedious, pend on US influence with the point. Economic pressure on left- obscure, and rarely meaningful foreign regime. For the American wing regimes, coupled with a work. And people who spend most mission as a whole, these programs steady relationship with the colo¬ of their adult lives dealing with represent a tangible investment of nels in the wings, helped to pro¬ other bureaucrats in remote places time and reputation, a call on duce less troublesome client re¬ tend to persuade themselves, Washington's resources, and thus gimes in both countries, albeit sooner or later, that dealing with further proof of the mission's again at a cost in human rights other bureaucrats in remote places importance—all bureaucratic as¬ enormous in Indonesia and yet to is pretty important. From there it’s sets to be nurtured and protected, be counted in Chile. a short step to the added conviction and all assuming continuing coop¬ Ideology certainly plays a role in that good relations with a particular eration from the clients. these decisions, which are cus¬ regime, are, or ought to be anyway, Even without major programs to tomarily made in the White House. urgent national business. dispense and husband, American But bureaucrats may also find In any event, to be without live missions in most countries are anti-Marxist dictators, especially clients, right or left, in or near likely to acquire a strong collective the efficient martial variety, easier power, is often to be bureaucrati¬ tendency toward agreeable rela¬ to deal with as clients than unruly cally impotent either in a mission tions with the host government. democrats like the Indians. abroad or in Washington. Ameri¬ US diplomats of every rank depend Ideology has also explained one can officials assigned to forgotten on the regime and the elites around of the few consistent exceptions to arenas like the UN are seldom a it for much of the information and cliency—our relations with the bureaucratic match for their col¬ influence by which their perfor¬ USSR. US diplomats in Moscow leagues whose clients are actual mance is measured. It is what the and on the Soviet desk in Foggy governments with the real power. Foreign Service prizes as “ac¬ Bottom are expected to be habitu¬ Special State Department offices cess,” the ability to hear and to be ally aloof from their clients. In this responsible for international law, Continued on page 30 26 FOREIGN SERVICE JOURNAL, February. 1974 veloped. For the student and CgJ BOOKSHELF general reader (Professor Hane’s targets) this is probably right. Professor Hane’s treatment of JAPAN, A HISTORICAL SURVEY, by the Pacific War and of the eco¬ Mikiso Hone. Scribners, $15.00. nomic difficulties of Japan in mak¬ ASSIGNMENT... ing modern war are models of com¬ pression and clarity. .. WASHINGTON! SURVEY courses in American col¬ —J. K. HOLLOWAY, JR. leges have been maligned too often. Let us welcome you. They are hard to teach (particularly CHINA JOURNAL, by Emmett Dedman. Hundreds of new when the entering classes vary Rand McNally, $8.95. homes, resale and rec¬ widely in talent and interest) and reational community IKE manuals on how to have a homes available. 11 of¬ their overall aim is easily lost to the L happy sex life, travelogues by fices to serve you. students in a welter of facts and recent visitors to China are much examinations. Out of these of a muchness. If you've read one, courses, and possibly because of VIRGINIA: you’ve read them all. 6510 Arlington Blvd., Falls Church these difficulties, have come some 9001 Braddock Rd., Springfield But this one is different. Written 1984 Chain Bridge Rd., McLean fine texts; other texts, not so fine, 310 Pelham St., Fredericksburg by a veteran newsman, one of the Oddfellows Bldg., Marshall have come out of these courses twenty directors of the American MARYLAND: because of the economics of the 2600 University Blvd., Wheaton Society of Newspaper Editors who 11125 Rockville Pike, Rockville textbook industry and the publish¬ 6480 New Hampshire Ave., Takoma Park toured China in October 1972, it is 19221 Montgomery Village Ave., Gaithersburg ing demands of the academic entertaining instruction for those WASHINGTON, D. C.: industry. Professor Hane of Knox 5034 Wisconsin Ave., N.W who can know China only through 3300 Pennsylvania Ave., S.E. College has used his experience to a tour de chamhre and worthwhile turn out a good text on Japan. FREE-Complete relocation kit! reading for those who know a good Write anv office or call In a survey text there is obvi¬ (202) 659-7155. deal about China. Wide-ranging ously room for argument about proportion. This volume tends to reportage, many fine photographs, and accomplished writing in a per¬ scant Japan’s long pre-Perry his¬ tory in favor of a generalized ap¬ sonal style make this an outstand¬ ing account of a perceptive odys¬ proach on how institutions de- REALTORS ESTABLISHED 1906 sey. A detailed report on the editors’ midnight “friendly conversation” with Premier Chou En-lai may spe¬ Be Wise Shop Riverside AUTHORIZED EXPORTER cially interest JOURNAL readers. 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RINDEN FOREIGN SERVICE JOURNAL, February, 1974 27 THE NIXON SYSTEM gust quoted above, Kissinger cited nished, to say the least, by the from page 14 “a series of tragic events over the periodic Presidential propensity for past decade” as the main reason what Spiro Agnew once called US actions and objectives. why “the consensus that sustained “positive polarization,” manifes¬ And in today’s crisis of Presi¬ our international participation is in ted recently in Nixon’s telling a dential credibility (and of Ameri¬ danger of being exhausted.” Veterans of Foreign Wars conven¬ can foreign policy purposes), this (Italics added.) Hopefully, as a tion that to “save American lives” last need may be the most impor¬ man who has achieved what he has he would do the Cambodian bomb¬ tant of all. Reflecting on the failure under a President and an approach ing the same way if he had the of the Johnson Administration’s which has essentially scorned ser¬ choice to make again. Vietnam policy, Bill D. Moyers ious dialogue and consensus¬ A more open approach would wrote in a 1968 issue of FOREIGN building for four-and-a-half years, not mean making everything pub¬ AFFAIRS that “The reaction to the he also recognizes the need to look lic. There is an obvious, and still war has been so fierce and sus¬ closer than the stars for much of widely-accepted need for secrecy tained that 1 cannot see future de¬ the fault. on many foreign policy-related cisions involving similar conse¬ The consensus was, of course, matters. But it would mean giving quences being made without asking largely exhausted in 1969. And to priority, wherever possible, to in¬ the people to share more fully in give Kissinger his due, he has made volving other Americans in the pol¬ the responsibility.” Yet the Nixon real efforts to articulate a new icy, and to making serious re¬ Administration proceeded to re¬ foreign policy approach. But he has sponses to the concerns of dissent¬ peat the same mistake. Kissinger given us a lecture rather than a ing Americans. It would mean a now says publicly, “No foreign dialogue, an intellectual construc¬ predisposition toward providing policy—no matter how ingenious tion more than an American politi¬ the public with an accurate picture —has any chance of success if it is cal construction, a “private” pol¬ of major US foreign policy objec¬ born in the minds of a few and car¬ icy with not just its tactics but tives and operations, and of their ried in the hearts of none.” But as a some of its key premises shielded underlying rationales. And in cases public official, he has acted so as to from Americans prominent and where frankness proved impossi¬ impede the development of the humble alike, who are intended to ble, it would replace the official lie consensus he now sees as essen¬ admire the end product but not with the ancient and honorable tial. In the address to the Interna¬ contribute to its design or its man¬ “No Comment.” tional Platform Association in Au¬ ufacture. And it has been tar¬ With the designation of Kis-

FOREIGN POLICY AUTO LOANS NUMBER 13, WINTER 1973-74, $2.50 3 THE NEXT CRISIS? 139 America’s Moral Confusion Food Philip Windsor Lester R. Brown 154 God And 34 Treating NATO’s John Foster Dulles FURNITURE LOANS Self-Inflicted Wound Townsend Hoopes R. W. Komer 178 Washington Dateline: 49 Getting Out The New Battlelines And Speaking Out Richard Holbrooke James C. Thomson, Jr. EDUCATIONAL LOANS 190 Contributors (MORE) ON MULTINATIONALS 71 Poverty Is The Product YOUR Ronald Midler SPECIAL TO AFSA MEMBERS 103 Does Society Also Profit? STATE A two-year subscription to Raymond Vernon DEPARTMENT FOREIGN POLICY (8 issues) is available for $15.00, a saving FEDERAL 118 Comment: of $5.00 over the newstand Richard J. Barnet price and $2.00 off the regu¬ CREDIT lar subscription rate. Send checks, stating that you UNION are an AFSA member, to Foreign Policy Subscription 123 The Great Oil Sheikdown Dept., 155 Allen Blvd., Come in and talk it over or send a letter Stephen D. Krasner Farmingdale, N. Y. 11735.

28 FOREIGN SERVICE JOURNAL. February, 1974 singer as Secretary of State, the But the closed Nixon-Kissinger making style and system has had Nixon Administration now has the decision-making style and sys¬ personality roots as well, which opportunity for something of a tem has had personality roots as work against both the needed trust of underlings and the conduct of fresh start. The merging of the Sec¬ well, which work against both serious dialogue in the political retary and Assistant positions is the needed trust of underlings mechanical and unconvincing as a arena. And their personal penchant and the conduct of serious for secretiveness as a weapon in long-range organizational solution, dialogue in the political arena. but it makes sense as a short-run bureaucratic, domestic, and inter¬ expedient, though some new ten¬ national politics is reinforced by a sion in the relationship seems an belief in extreme top-level flexibil¬ inevitable result of the increased ity on both bureaucratic manage¬ strength of Kissinger’s position. ment and international relations And while it is unclear what rela¬ grounds. None of this will be easily tive emphasis Kissinger will give to changed. Kissinger’s new job is the two jobs, and what will happen bound to alter his relationship with to his National Security Council But if the prescriber must retain Richard Nixon as well as how he staff, the State Department does his hope, the analyst must keep his deals with others; there is room for now have, in form at least, the skepticism. Kissinger now has the hope that some of the changes will strong Secretary that is a prerequi¬ State Department base which be in directions urged here. But the site for its rejuvenation as the lead¬ would, if this analysis is correct, changes to date have been more in ing US government foreign policy- make it easier for him to build a what the Secretary is saying than in influencing institution. Also, Mr. team of strong subordinates and what he and his President have Kissinger now has a platform from supporting staffs, and give them been doing. The old Nixon- which to speak if his recent con¬ the needed backing. If one Presi¬ Kissinger system has probably run version to domestic political heal¬ dential aim is really a “closer coor¬ through the largest of the problems ing and consensus-building is a dination” between the White to which it was suited. Its replace¬ serious one, and if the President House and State, it is on the build¬ ment by a new approach better permits him to practice the new re¬ ing of such a team that its success adapted to today’s domestic and in¬ ligion. As this article is completed, will, above all, depend. But the ternational environment, however, he is beginning so to speak. closed Nixon-Kissinger decision¬ is anything but assured. ■

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FOREIGN SERVICE JOURNAL, February. 1974 29 CLIENTISM IN THE identifying with the interests of its diplomats cultivate for a country or FOREIGN SERVICE hosts. Among diplomats who es¬ region, a matching of personalities from page 26 cort junketing congressmen and and views that may leave an watch the steady shrinkage of their American official feeling more heard, which many career officers aid appropriations, who see de¬ comfortable with a Pakistani gen¬ regard as the essence of their pro¬ partments recurrently placed under eral than with many of his own col¬ fession. the direction of a new set of leagues, the prejudices and emo¬ To that end, American diplomats “amateurs” and ever hostage to tions released by being witness to may cultivate their contacts liter¬ politics or fickle public moods, dramatic events such as civil wars. ally day and night. In many coun¬ there grows the conviction that one Any of these influences may blur tries their universe is peopled of the major burdens of career that critical boundary between the largely by distinct groups— politi¬ foreign service is to protect US re¬ US national interest, or simply cians who are sensitive to slight or lations with other regimes from the what is right, and the bureaucratic interference, landowners who excesses of Washington. That or private interests of American of¬ abhor economic reform, police perspective, too, can be personal ficials abroad. who see conspiracy, and not the as well as bureaucratic. Who in¬ Then, too, the Department of least, the ubiquitous colonels who deed is the expert on the scene? State and its officers are still pecul¬ exude authority and grow impa¬ Who, after all, spends his life de¬ iarly isolated among the great tient with democracies. Over a fending the national interest on agencies of government. The prob¬ desk or at a dinner party, the US these frontiers? The view of lem is not only that diplomats diplomat feels the importance of Washington as ignorant and dis¬ spend years out of the country. these citizens (a reflection of his tracted, as the source of perhaps Even in Washington they seldom own), their ardor, their wrath or dangerous meddling for transient encounter the people they are sup¬ approval at first hand—realities reasons, can give the career of¬ posed to represent. Nearly every which may be scarcely appreciated ficialdom of a US embassy a com¬ other bureaucracy must face some in distant Washington, though they mon zeal, sometimes a fervid sense public constituency — welfare loom large from Athens to Jakarta, of mission, in representing the pos¬ mothers at HEW, rent strikers at from Rio to Lagos. ition of another government. HUD, truckers at Transportation. That distance from Washington There are also human commit¬ And nearly every other bureau¬ gives a US mission abroad its ments no institutional factor quite cracy has felt recently the cleans¬ strongest single impulse toward explains—an intense loyalty some ing light of exposure in the era of

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30 FOREIGN SERVICE JOURNAL. February, 1974 public interest research. But State genuine provision for internal dis¬ Department's potential role. Their continues to govern by inertia and sent and a wider exposure of reaction is too often a weary cyni¬ default, in camera, unaccountable American diplomats to their own cism. Foreign Service reform may except to bureaucratic self- society. resemble nothing so much as the interest. Diplomacy can be a career truly reforms of tsarist Russia—agreed Yet, ironically. State may also open to talent, its ranks refreshed necessary for survival, much be the bureaucracy with the at all levels by the infusion of heralded, never quite taken before greatest potential for responding to short-term officers from outside it was too late. the public interest. Foreign Service government, men and women cho¬ Ultimately the answer to the officers are free of the huge pro¬ sen precisely for their indepen¬ problem must lie in the consciences grams and special domestic in¬ dence and unorthodox and critical of the career officials. They know terests that so often freeze their views of policy. Those who repre¬ more than any critic that an honest colleagues in other agencies. sent America in the world could and sophisticated cliency—as a It is ironic too that cliency, as a usefully spend at least half their sensitive appreciation of other product of this isolation, has only careers in the country that pays societies—is the heart of diplo¬ served to deepen the eclipse of the their salaries, in more than token macy. No government, however State Department in the making of positions on congressional staffs, willful, can rationally dispense with foreign policy. Presidents watching on newspapers, in what State De¬ that observation and interpreta¬ some of the absurdities and distor¬ partment bureaucrats call with tion, least of all in this incendiary tions of State's efforts to protect nervous sarcasm "the real world” age. their clients have been further con¬ of people and perspectives beyond firmed in their accumulation of the encapsulated worlds of embas¬ BUT only the career service can power in the White House. sies and bureaus. perform that essential role with in¬ The answer to the many prob¬ But none of this is new. These tegrity, unafraid of career or bu¬ lems of cliency surely starts with steps are endlessly discussed, and reaucratic loss. Only they can en¬ the opening of the foreign policy the outlook for real change is still sure that the real clients of Ameri¬ process—much as the habits of bleak. Foreign Service officers can foreign policy are the people government are under challenge know that their pseudo-elitism, beyond governments—people at domestically. And of the many re¬ their parochialism, their penchant home and abroad who must pay the forms that would mean for the for cliency are all a malignant flesh-and-blood costs of our deci¬ Foreign Service, the most vital are waste of individual talent and of the sions. ■

FOREIGN SERVICE JOURNAI . February. 1974 31 URBAN INNOVATION and Duesseldorf have created and noise levels have gone down in from page 23 traffic-free zones of 2.4 and 3.4 km. all cases—Tokyo reports a drop of respectively and Essen enlarged carbon monoxide concentrations the system of pedestrian streets from 14.2 to 2.9 parts per million in proposed beltway spurs to dump and malls to create a connected the central Ginza during a tempor¬ more cars into congested cities but car-free zone that is over a kilome¬ ary closing in August 1970—and we are considerably behind Europe ter long and 300 meters wide. there have also been marked esthe¬ in banning the car from the central Vienna’s ambitious program calls tic improvements in the appear¬ business district and in promoting for a large traffic-free inner city ance of historic streets and squares the use of public transit. zone of 1.2 km. in diameter that returned to pedestrian use. initially European cities pro¬ would be served by non-polluting vided for vehicle-free shopping miniature buses. Seeds of the Future streets in the downtown area, When pedestrianization projects The limited scope of this paper sometimes extending the traffic are proposed and implemented allows only the skimpiest look at a ban to adjoining and parallel streets there are usually sharp protests few examples of technological and or squares to create compact from area merchants who are con¬ organizational innovation that pos¬ pedestrian shopping zones as in cerned lest business will drop off. sibly contain the nucleii of things to Copenhagen (Stroget), Amsterdam Experience bears out that this is come: (Kalverstraat), Rotterdam (Lijn- not the case. Rouen, France, baan), Helsinki (Aleksanterink- which closed to traffic and repaved Underground and Domed Cities atu). In Rome several non-con- with cobblestones its historic Rue Under the skyscrapers, shopping tiguous historic streets and squares du Gros Horloge, reports an in¬ malls and freeways of Montreal an are reserved for pedestrian use and crease in retail sales and requests underground city extending for during the summer tourist season for extension of the zone by mer¬ over 200 acres invites the pedes¬ the vehicle ban is extended to Via chants in adjoining streets. The trian to shop, stroll, eat, pursue Veneto which is taken over en¬ same reaction came from Norwich, sports and be entertained without tirely by strollers and sidewalk England, which paved over Lon¬ traffic or inclement weather wor¬ cafes. don Street, closed it to traffic and ries. Special lighting gives a day¬ More ambitious schemes for the furnished it with attractive flower time effect to the spreading subter¬ closing of entire shopping districts boxes, benches and display cases ranean city, linked with the air are also on the books. The Hague used by street merchants. Pollution conditioned Metro net and the STUART & MAURY, Inc. Washington Area Housing Gride REALTORS Free comprehensive information kit containing local tax and sal¬ ary scales, a financing guide, school, recreation and health facilities, Sales • Rentals • Insurance history and everything else you need to know about living or buying in Northern Virginia, county by county. Also, what to Specializing in Residential Properties do in Washington D C., moving hints and details of our complete relocation Northwest Washington services, rental housing and property management Montgomery County, Marylanct Write or call collect (Area Code 703) Member: Multiple Listing Service 3807 Mt. Vernon Ave., Alexandria, Va 836-8915 4701 Old Dominion Dr., Arlington, Va 525-6900 5010 Wisconsin Avenue, N.W. 4205 Evergreen La., Annandale, Va 256-9100 1384 Chain Bridge Road, McLean, Va 356-1323 Washington, D. L. 20010 6556 Blacklick Road, Springfield, Va 451-0111 Telephone: (202 ) 244-1000 9637 Lee Highway, Fairfax, Va. 591-7000 1805 Belle View Blvd., Fort Hunt, Alexandria 768-5100 Let Vs Know You Saw Our Ad In The Journal 13414 Occoquan Road, Woodbridge, Va 494-7101 309 Maple Ave., W., Vienna, Va 938-5800 SHOP IN AN AMERICAN DRUO STORE BY MAIL!

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32 FOREIGN SERVICE JOURNAL. February. 1974 main station, as well as principal on 2 percent of the land, Japan has harmless. The intermunicipal com¬ hotels and main squares above been experimenting with multi¬ pany organized recently by the ground. An increasing number of purpose artificial land involving a Danish Municipal League manages these underground malls are also large concrete deck set above park¬ its own collection depots, treat¬ appearing in Europe and Japan and ing areas, roads, railways, ware¬ ment tanks and laboratories. their future seems assured. In addi¬ houses and other urban facilities. Some Swedish new towns boast tion there is the advent of the The deck itself serves as a founda¬ ingenious waste disposal systems multi-purpose building, called tion for office structures, parks, that use pneumatic tubes to “vac¬ "Kaikan” in Japan, outwardly un- apartments and detached single uum” household garbage to a cen¬ distinguishable from an office family dwellings. These pilot proj¬ tral treatment plant whence the building, but inside containing all ects aim at turning the airspace heat generated is recycled back the facilities of a city center above low-slung essential urban into the heating system of the —restaurants, shopping arcades, facilities such as stations and mar¬ apartment complex. In Japan, a theaters, hotels and offices. These shaling yards into residential land. pilot process compacts treated superbuildings are also linked with Moving sidewalks already in use waste into building blocks. the underground shopping centers at air terminals will make their ap¬ The presence around the world that connect central train stations pearance in new towns of tomor¬ of some ingenious new urban tech¬ with the heart of the city. Some row. Complete traffic separation nology, from the convenience of Japanese architects foresee as the and people movers operating at 4 TV rear view monitors on Tokyo next step the construction of entire kmh are a feature of an Italian new buses and quick-coupling fire jacks connected city centers above and town for 65,000 people—Citta in Germany to potential break¬ below ground. An entire domed Nolana—which will occupy a hill- throughs in building techniques city for Arctic use is now under de¬ site behind Naples, if the red tape now being worked on in several sign in Germany. It is entered by that now ties up the project ever countries, strongly argues for ac¬ airlocks and the pressure- gets unsnarled. tive information exchange by mu¬ supported transparent membrane nicipal leagues for the considera¬ Waste Treatment roof covers an area of several tion of local authorities. square kilometers. Climate and Some 90 Danish municipalities Conclusions and Recommendations daylight is man-made. jointly own and operate a waste oil Plagued by urban density that treatment plant that reclaims useful What emerges clearly from this has 80 percent of its people living substances and renders pollutants survey is that the roots of

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FOREIGN SERVICE JOURNAL, February, 1974 33 America's unprecedented urban poor neighborhoods and in many the sum total of private interests. crisis lie in the past, in cherished instances the fragmentation of In this view private investment is ideas and traditional attitudes that communities along racial lines. In considered productive but public until recently were beyond ques¬ the absence of comprehensive ur¬ investment as wasteful and the best tion like the holy cows that block ban planning, zoning ordinances thing a community can do is to stay traffic in the streets of New Delhi. were an imprecise tool to bring out of the real estate business. Equally compelling is the evidence some kind of order into an urban Commercially-unattractive social that the decline cannot be halted or scene dominated by the dynamics goals get lost in this approach. reversed through the use of patch- of the market place. But they are • Reluctance to engage in com¬ work temporary and stopgap mea¬ no substitute for planning, and their prehensive planning for urban sures, palliatives that treat the underlying philosophy of neat sepa¬ growth and hesitation to provide symptoms and not the disease. A ration of urban functions is very municipalities with the legal tools rethinking of basic values and prin¬ much open to question in the age and financial resources necessary ciples of urban living is required of alienation. to put plans into effect. together with the courage to take • Reliance on the property tax • Reliance on the market place bold measures and devolve on as the main revenue source of our to provide economic stimulation strengthened local government le¬ communities which has rendered and disincentives for depressed or gal powers that will close tradi¬ them highly vulnerable to the de¬ overheated urban sectors. The tional private options for social parture for the suburbs of the more forces of the market place geared goals. affluent segment of their popula¬ to the expansion of production and The unwritten dogmas that need tion. This at a time when they need profits have been unable to meet rethinking include: more funds than ever before to desirable social goals that have a • The American practice of zon¬ provide services for the indigent low expectation for private gain. ing for single rather than multiple and the dependent that have re¬ The resistance to change in the use which compartments urban liv¬ mained behind. Revenue-sharing is present outdated structures of local ing space into residential, commer¬ only a partial recognition of the government and in public housing cial and industrial districts. Separa¬ problem. The local tax system it¬ policies which perpetuate poverty tion of shopping, office and living self needs to be reexamined. and social ills, likewise block prog¬ quarters leads to deserted central • Land use policies that shirk ress towards the major reforms re¬ business districts, urban monot¬ municipal acquisition and tend to quired if a renaissance of urban ony, the accelerated decline of assume that the public interest is values is to be achieved. ■

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34 FOREIGN SERVICE JOURNAL, February. 1974 LETTERS TO | with a policy largely dictated by and on academic and professional domestic political interests was accomplishments can be mislead¬ personally intolerable. ing, as they distract attention from Wisdom of the Middle East Regardless of our periodic public the innate qualities of the man In a recent issue of the Foreign rhetoric about the USG’s neutral which so contributed to make him Service JOURNAL, 1 read with great posture aimed at promoting a last¬ the success in his profession he interest a letter on the Middle East¬ ing peace in the Middle East, our was to become. Ambassador ern problem by a former Foreign policy did not change after 1967. Bohlen himself always made it a Service officer. The tragic events Indeed, if anything it moved fur¬ point to distinguish between intel¬ which have since occurred in this ther in the direction of supporting ligence or knowledge and judgment troubled area of the world under¬ one nation—Israel—even though in individuals; in keeping with his score and add a sense of immediacy its rigid and expansionist policies own general attitude, an evaluation to the questions which he has offered little hope creating the basis of his personal attributes rather raised concerning the wisdom of for a viable Middle East settle¬ than of his acquired professional United States policy toward the ment. skills is probably more useful for a Middle East. The cost of our policy since 1967 true appreciation of the man. While it is neither prudent nor has by any objective standard been The Ambassador’s approach to appropriate for me to comment tremendous—both in terms of his work was characterized by directly on the current conflict in growing Arab hostility toward modesty and simplicity. The title of the Middle East, 1 would like to the US and expanded opportunities his memoirs “Witness to History,” make a few personal observations for Soviet influence in the area (al¬ is illustrative; no grandiloquent about some of the issues raised in ready evident in 1967) and most claims to influence over events, the article. In 1967, Personnel as¬ recently the prospect of undermin¬ just the admitted realization that he signed me to the American Em¬ ing our relations with the friendly was fortunate to be at the right bassy in Baghdad where I served Arab countries left in this part of place, performing an interesting until June 1967 when Iraq broke the world which control energy function, on significant occasions. diplomatic relations with the US resources vital to the economic His personal modesty was also re¬ because of our policies in the last well being of the US and its Euro¬ flected on a wider scale in his often Arab-Israeli war. As an officer pean and Asian allies. expressed opinion that the actions with aspirations for a career in the The current war in the Middle of individuals, no matter how political field, I carefully consid¬ East is a tragedy for all concerned highly placed, could have only rare ered the possibility of specializing and a genuine threat to world and limited influence on the course in this troubled but important and peace. Fortunately, Foreign Ser¬ of events; the historical process, in fascinating area of the world. After vice officers specializing in this his opinion, was the result of vast weighing the professional pros and area are now in a better position impersonal forces largely beyond cons, 1 rejected such a career com¬ to make their convictions known, the control of statesmen or sol¬ mitment basically for reasons so that the Secretary, the President diers. This view of history does not alluded to in the officer’s letter. and other responsible officials now lend itself to sweeping conclusions, From my brief acquaintance with have the benefit of sound profes¬ colorful language, or easy solutions the area, it seemed very clear that sional advice in reaching decisions and his words and writing were domestic political considerations which seriously affect our national consequently sometimes disap¬ largely dictated US foreign policy interests. pointing to some, containing such phrases as "... 1 still think it in the Middle East to the detriment RICHARD B. HOWARD would have been better to do (such of longer range US national objec¬ Washington tives. A Foreign Service officer and such) but it probably would not certainly should not and cannot CHARLES E. BOHLEN have made much difference.” But it was the only language possible ignore domestic forces and opin¬ Qualities of a Senior Diplomat ions which play a legitimate role in for a man of his outlook articulating shaping US foreign policy. Charles Bohlen will remain best his thoughts with absolute sincer¬ Nevertheless, 1 reached the con¬ known as a specialist on Soviet af¬ ity. clusion at that time that a political fairs and a practitioner of the dip¬ The simplicity of Ambassador officer working in the Middle East lomatic art who not only reached Bohlen’s approach to issues or would continually encounter diffi¬ the top of his profession but also problems could be surprising in one cult, perhaps insurmountable, attained an influence and standing known to be so experienced and obstacles, in providing objective in and outside of government rare erudite. Yet it was precisely be¬ analysis and policy recommenda¬ for a career Foreign Service of¬ cause of his great knowledge that tions which could reasonably be ficer. Much has been made, as it he could permit himself to speak in expected to influence the formula¬ should, of the impressive intellec¬ extremely basic terms, completely tion of a rational US foreign policy tual credentials he brought to the without affectation, on subjects for the area. In retrospect I recog¬ job, of his arduous study of the concerning which few could match nize that rejection of a career in the Russian language, Communist his understanding. It was not the Middle East for the reason outlined theory and Soviet history, and of simplification imposed by limited above constituted an abdication of the experience and insight he knowledge; rather his intellectual responsibility but the prospect of gained in his long years of dealing curiosity, voracious reading, and having to submerge and/or adjust with the leaders of the USSR. But continuous contacts with the know¬ political convictions to conform emphasis on these qualities of mind ing and powerful had placed him FOKLKIN SI RVICK JOURNAL, February, 1974 35 beyond the stage where the com¬ people and organizations and occa¬ 1924 and the Foreign Service Act plexity of issues fascinates or sionally wittily irreverent in pri¬ of 1946. He started at the bottom as overwhelms and is therefore re¬ vate. This would be for the sake of a career Vice Consul in 1921 and, flected in one’s words. His direct the joke, however, and he was in a period when promotions came approach led him to the crux of never hostile toward or cynical slowly, as a rule, he reached Class situations, disregarding or master¬ about human insitutions, but al¬ 1 in 1940. Eventually, he attained ing the attendant facts or circum¬ ways conscious of the lofty aspira¬ the goal sought by all officers; he stances as appropriate, and his tions they embodied. On a higher became an Ambassador with the modesty and straightforwardness plane his awareness of the fragility permanent rank of Career Minister did not permit him to embellish his of existence and the ephemeral na¬ and served in Costa Rica and Hun¬ plainly stated conclusions for the ture of human accomplishments gary. However, my purpose is not sake of appearances or to impress was matched by an appreciation of to dwell on his successful career an audience. Nor were his opin¬ and admiration for man’s strivings. but to express appreciation of his ions affected by any personal stake This attitude was made evident by qualities as a man and a friend. He in the matters under discussion; his the dignity, courtesy and deference served at one time or another as lack of egocentrism allowed him to which were the most noteworthy Chief of the Division of Foreign remain relatively detached and outer qualities of Bohlen the man, Service and Chief of the Division take a completely objective view who made his career in diplomacy. of Foreign Service Personnel; con¬ even on matters in which he was R.B. sequently he had a very wide ac¬ deeply and personally involved. Saigon quaintanceship in the Service. All Lest anyone gather the impres¬ IN MEMORIAM who brought their problems to him sion of a colorless and faultless JOHN CALVIN HILL were sure of a sympathetic hearing paragon Ambassador Bohlen's and a fair decision. Those who well known personal foibles can 1921-1973 worked with him as subordinates also be recalled. His delight in / only know the night was cold or associates came to feel toward poker, golf and hunting, his enjoy¬ outside, with harsh unpitying light him not only loyalty and esteem, ment of good food and drink made of piled up snows; but genuine affection. him, in spite of his often reserved inside the dim blurred white Today, when the Foreign Serv¬ public demeanor, a delightful com¬ of rubber-matted corridors. ice has grown to enormous pro¬ panion to his intimates. He also The quiet tread of nurses in the portions, with some loss of a feel¬ could become properly irritated at gloom ing of fraternity and esprit de displays of stupidity or pretension. whispered, but no murmur came corps, the new generation is in¬ As he himself relied on and trusted from the darkened sick-room. clined to forget what things were his subordinates, he could be driv¬ like in Pen Davis’s time. He en into fits of indignation, spirited And finally she came to tel! me worked countless hours of uncom¬ and profane, by untoward advice he was dead, pensated overtime and he probably or backseat driving from Washing¬ so I picked up my foolish hat and seldom if ever came home on leave ton. walked at government expense. Even so, But these personal quirks only along the street, while overhead he never felt that he was being mis¬ made all the more welcome and ac¬ the moon shone and the stars treated or taken advantage of be¬ ceptable the laudable human qual¬ were much too bright . . . cause he loved his work and was ities which he brought to his pro¬ as if God had been kind convinced that he was doing some¬ fession. These, combined with his or the world right. thing useful for his country. impressive physical presence, the Awards and citations were practi¬ powerful scholar-athlete still very WILLIAM A. KRAUSS cally unknown in his day and he much apparent, made of him an never expected either. He would American Ambassador of surpass¬ A Salute to a Colleague have found it unthinkable to con¬ ing dignity and effectiveness who sider forming a union or any other imposed, sometimes by his pres¬ Retired Ambassador Nathaniel type of organization to negotiate ence alone, good sense, order, and P. Davis died in Winter Park on with the Secretary of State about simple but proper decorum on any the evening of September 12, 1973. conditions of employment. It situation in which he participated. He passed away quietly and peace¬ would have been just as logical, in It was largely because of his.presid- fully while reading in a home he his opinion, to go to the Secretary ing role that the US military with¬ had recently acquired after decid¬ and demand to be given a certain drawal from France in 1966-67 was ing to transfer his permanent resi¬ post. accomplished in such a way that it dence from the severe winters of Well, autres temps, autres could serve as a model of conduct Glens Falls, N.Y. to the milder moeurs. My purpose is not to make for two friendly and allied sover¬ climate of Florida. invidious comparisons but to salute eign states in disagreement. Pen, as he was known to all of a colleague who was not just a suc¬ Ambassador Bohlen’s effective¬ his friends and associates, be¬ cessful officer but a man of char¬ ness with governments or individu¬ longed to a generation of Foreign acter, integrity and compassion. als was largely the result of the re¬ Service officers that is rapidly dis¬ Those who knew him will join me spect which he showed toward the appearing. Most of his service took in mourning his loss. insitutions and the positions of the place during the period 1920-1950 WILLIAM E. DE COURCY men with whom he dealt. He could —an era that saw the great changes Ambassador Ret. be properly objective in appraising brought about by the Rogers Act of Winter Park 36 FOREIGN SERVICE JOURNAL, Februarv. 1974 Election Results ELECTIONS NOTICE AFSA’s Tehran Chapter for five AFSA's election votes have years; AFSA Board liaison with For 45 calendar days following pub¬ the Foreign Service JOURNAL; been counted and the Elections lication of this provision, the Elec¬ Committee has certified the follow¬ serves on the Finance Committee; tions Committee shall accept for Chairman of AFSA's USIA ne¬ ing results: consideration any formal, written Total number of ballots cast, gotiating group. complaint by a Member on the con¬ FRANCINE BOWMAN (FSS 2353; number of ballot envelopes duct of the 1973 elections; and the found invalid, 30. Of the votes 6) Chairperson of the Staff Corps Committee shall respond in writing Advisory Committee; organizer of cast. Tom Boyatt received 1668 for to each such complaint within 30 President, John D. Hemenway, AFSA’s demarche on overtime; calendar days of its receipt. Any member of the board of the 518, Robert T. Willner garnered 3 complaint so submitted and consid¬ write-in votes and James S. Sutter- Women’s Action Organization; ered and which is not thereby re¬ principal drafter of the Bill of lin and Sandra L. Vogelgesang, 2 solved shall be regarded as open to each, with 20 other AFSA mem¬ Rights for Secretaries. further consideration in accordance CHARLES CROSS (FSO I) bers getting one write-in each. with the provisions of E.O. 11636. For Vice President, Tex Flarris Policy Planning Staff; former Am¬ received 1543 votes and his oppo¬ Elections Committee bassador to Singapore following several posts in the Far East; nent, John J. Harter. 649, with 4 Achievement Slate write-ins for John D. Hemenway, began in USIA and has also served and 14 others receiving one vote TOM BOYATT (FSO 3) NEA in AID: Chairman of AFSA's each. Country Director; decorated by Awards Committee. Edwin L. Martin, unopposed Department for valor; winner of CHUCK HOFFMAN (FSSO candidate for second vice presi¬ the Rivkin Award for creative dis¬ 2) Chief of the Maintenance dent, garnered 2023 votes, with sent; AFSA Chapter organizer and Branch of the Office of Communi¬ cations; member of the Staff Corps two write-in votes for Robert H. committtee member for 10 years; Harlan and Norman G. Wycoff, manager of AFSA’s successful Advisory Committee; appointed to respectively, and Rick Melton was election campaigns for exclusive AFSA Board in June 1973 on Jim elected Secretary with 2020 votes. representation of State, AID, and Holmes’ departure. Lois Roth received 2050 votes tor USIA. RAY SMITH (FSO 6) Country Officer for Sudan; former labor re¬ the Treasurer's position. TEX HARRIS (FSO 5) Office AID representatives, Mary Ann of Trade; Board Vice Chairman; lations examiner with NLRB; or¬ Epley and John Patterson, re¬ spent 17 months in 1972-73 as ganizer of AFSA's Tunis Chapter; ceived 338 votes, with Roy A. AFSA's full-time Counselor: currently serving as Treasurer of Harrell, Jr. the write-in candidate lawyer; drafter of new AFSA Con¬ JFSOC and Acting Treasurer of AFSA. on two ballots; State representa¬ stitution and the Pell Amendment tives are Charles Cross (898), which guarantees rank order pro¬ MARY ANN EPLEY (FSS 7) Chuck Hoffman (898), Ray Smith motions in the Service. Secretary in the Supporting Assist¬ (842). and Francine Bowman (804). EDWIN L. MARTIN (FSR 2) ance Bureau, AID; organizer of Robert T. Willner, independent Education Adviser in AID; former first open meeting for AID FSS; candidate for State representative President of Trenton State Col¬ member of AID/AFSA Election received 440 votes, with write-in lege; Co-Chairman of AFSA's Committee and currently Chair¬ votes for John J. Harter (5) and campaign for election as exclusive man of AFSA's AID group. Robert F. Pfeiffer (2). USIA will representative in AID; co-organ¬ JOHN PATTERSON (FSR 4) be represented on the Governing izer of AFSA's AID Advisory Office of Development Adminis¬ tration. AID: organizer of AFSA’s Board by Carl Gebuhr (205 votes) Group; currently AID/AFSA Kabul Chapter in 1970; Chairman, and two write-in votes were re¬ Chief Negotiator. AFSA's Steering Committee; ceived by Duane L. King. RICK MELTON (FSO 4) Dep¬ AFSA's retired constituency uty Director, Policy Planning, Chairman, AFSA/A1D personnel negotiating group. elected representatives James W. ARA; member of AFSA's Com¬ JAMES W. RIDDLEBERGER Riddleberger (394) and William O. mittee of Forty which did the (Career Ambassador-ret.) Asst Boswell (377). groundwork for E.O. 11636; cur¬ There were also scattered write- rent Chairman of AFSA's State Prof. International Relations, Georgetown U. 1926-29; Tariff in votes for other positions. Department negotiating group. Capsule biographies of the new LOIS ROTH (FSIO 3) Western Commission 1927-29. Entered officers and representatives follow: European Area, USIA; activist in Foreign Service 1929, serving prin- FOREIGN SERVICE JOURNAL. February, 1974 37 cipally in Europe and in State De¬ the nation’s political problems, and had already raised during the partment on European affairs in on those strange colored corridors negotiations which had major 1930s and 1940s, including tours of they keep painting in New State budgetary implications. Accord¬ duty as POLAD to CINCEUR with reckless abandon. ingly, we again used the cable and HICOM, Germany in late This was the month that the bal¬ agreement (which permits AFSA 1940s. On loan to ECA 1950-53. lots were counted for the AFSA use of the Department’s telecom¬ Ambassador to Yugoslavia 1953- elections. There had been some munications system when man¬ 58; to Greece 1958-59. Director thought that the vote turnout for agement needs a rapid response 1C A 1959-61. Chairman, Devel¬ the election would be rather light. from AFSA for which we need to opment Assistance Group in Paris In reality, the problem was the communicate with the mem¬ 1961- 62. Ambassador to Austria other way around. Verifying, sort¬ bership) to ask for views on the re¬ 1962- 68. Retired 1968. Serving ing, and counting ballots proved to lative priorities on five items. since 1968 with the Population be a major exercise, but Mike We received responses from Crisis Committee, 1835 K St., Gannett, as Chairman, had done over 75 AFSA organizations over¬ N.W. Washington, D.C. 20006. an excellent job of organizing his seas (representing yet a larger WILLIAM O. BOSWELL Elections Committee to handle the number of posts) on the cone sys¬ (FSO-ret.) Entered Foreign Ser¬ workload. A full report of the elec¬ tem study. We received an even vice 1939 and until mid 1960s tion results appears elsewhere in larger number of responses from served mainly in diplomatic and the AFSA News. On January 15, our overseas organizations on the consular posts in Europe. Was as provided for in the Bylaws, re¬ priorities on the members’ interests Consul General in Rome and in sponsibility for running the As¬ questions. The overwhelming re¬ Milan 1955-58. Served as DCM sociation’s affairs was passed from sponse which our cables received, and Consul General with Personal the old Board to the new. and the amount of careful analysis Rank of Minister in Cairo This month also saw the begin¬ which went into several of the re¬ 1962-1965. Performed personnel ning of our luncheon series. How¬ sponses, was very gratifying. work in State Department 1950-53 ard Schaffer, Chairman of the Taken together, the response to the and 1965-68. Was Director of Of¬ Luncheon Committee, has done a two cables constitutes the most fice of Security SC A. 1959-62. fine job of organizing an excellent widespread and indepth Service Served in International Confer¬ program which focuses on foreign pulse-taking ever attempted by ences in State Department 1968-70 ambassadors in Washington. The AFSA, and permits us to pass our until retirement. guest speaker at the first luncheon responses to management not only THIS MONTH IN WASHINGTON was Ambassador Ortona, of Italy. on comments received in Washing¬ In his remarks, Ambassador Or¬ ton, but also from the vast bulk of By Rick Williamson tona emphasized the long-standing our members overseas. We have This month, your trusty AFSA and positive contributions which already tallied the responses on Counselor spent two weeks in Italy has made to European inte¬ members’ interests, and have in¬ California visiting family (via a gration. The speaker at the second formed management of the result¬ DSRA Charter—everything possi¬ in our luncheon series was Mexi¬ ing priorities. We have also nearly ble went wrong on the flight out, can Ambassador to the United finished our comments on the cone but you can’t beat the price). It States, Senor Ottaqui. Ambas¬ system, and will be submitting turned out to be one of the best sador Ottaqui was introduced by these directly to the Secretary this months for AFSA in recent mem¬ Ambassador Jova, who had just week. We will send out a summary ory . . . Which says a lot about my been sworn in as American Am¬ of the comments received on the irreplaceability. Last month 1 bassador to Mexico. Ambassador cone system shortly via a “red promised to do an interview with Ottaqui stressed the unresolved top.” those heating-grate bums. Unfor¬ problems in hemispheric relations, This month also saw a ruling by tunately, the Washington POST, and emphasized the need for a con¬ Judge Gesell of the Federal Dis¬ having scooped the nation on tinuing dialogue between the trict Court on selection out. As we Watergate, now has a reputation to United States and the countries of indicate elsewhere in the AFSA maintain. Having learned perhaps Latin America. Both luncheons News, the Judge in his ruling from “This Month in Washington” were very well attended. closely followed the principal rec¬ of the possibilities of a story of in¬ As we reported last month, the ommendations of AFSA’s friend- ternational interest, the POST got Secretary had ordered the Director of-the-court brief, namely, that an exclusive interview while we General to undertake a thorough selection out is useful and should basked in the California sun. By study of the cone system. Given be retained, but that present pro¬ popular demand, we will try to get this opportunity to present our cedures for selection out in State reprint rights to bring you this ex¬ views to the Director General and and US1A lack adequate due proc¬ citing exclusive. independently to the Secretary, we ess safeguards. The month saw the political sent a circular cable to all overseas In USIA, we are currently seek¬ temperatures in Washington heat posts requesting the views of ing to negotiate an agreement to back up, and the Redskins cool off. AFSA members on the cone sys¬ safeguard the promotion process, Both were predictable, both re¬ tem. Shortly thereafter, we re¬ similar to the agreement which we grettable. The collapse of the Red¬ ceived a second request from man¬ already have signed in State. The skins meant that there would be no agement to work together to estab¬ Agency is inexplicably dragging its Super Bowl madness in Washing¬ lish priorities for those members’ feet on an issue central to the integ¬ ton, forcing us all to concentrate on interests proposals which AFSA rity of promotion process, and we

38 FOREIGN SERVICE JOURNAL. February, 1974 may have to take the issue to the and Senators to get this provision substandard performance, but also Disputes Panel in order to get it re¬ put into law. AID employees, who because: solved. almost without exception serve in • Selection out for time-in-class The big news in AID is that the less developed areas of the is not affected. Foreign Service retirement finally world, share the same or even • Selection out for substandard passed both Houses of Congress greater hardships than their performance is in other respects and was signed by the President Foreign Service colleagues in State maintained. (more on this below). This month, and USIA, and thus have long mer¬ • The right of an officer to see we finally received the findings of ited Foreign Service retirement. all materials relating to his case fact and recommendations of the As welcome as this step is, it is but which were considered by a selec¬ Disputes Panel in the case involv¬ one of many needed to be taken in tion board is clearly affirmed, as is ing ship travel for AID personnel. AID before we have a genuinely his right to an adequate statement The Disputes Panel found entirely unified Foreign Service. of reasons for a selection board in AFSA’s favor, which is a major Selection Out recommendation that he be victory for the Association and for On December 12 the Federal selected out. AID personnel. The final step in District Court in Washington, Judge Gesell’s decision accords this process requires a decision by closely following the recommenda¬ in every important respect with the the Board of the Foreign Service. tions of AFSA’s friend-of-the- brief filed by AFSA in this case on We trust that the Board will in fact court brief, decided that the selec¬ August 31, 1973: officers should confirm the Disputes Panel's rec¬ tion out system in State and USIA see all relevant documents consi¬ ommendations and permit AID should be preserved. However, dered by selection boards; officers personnel the same limited rights to Judge Gesell characterized the should receive a statement of use American vessels that are al¬ present limited hearing procedures reasons why they were placed in ready enjoyed by State and USIA as “constitutionally defective.” the selection out zone; and they personnel. We also continue to The court set forth the minimum should have the right to a fair hear¬ make some progress with AID on a safeguards it considered essential ing with opportunity to be rep¬ number of outstanding issues, par¬ when an officer in State or USIA is resented by counsel, to present jus¬ ticularly the new Personnel Hand¬ identified for possible selection tifying documents and information book and the establishment of a out: and to challenge adverse state¬ policy of conversion of limited • the officer must be advised of ments. AFSA strongly supported status employees. the facts upon which selection the principle of selection out as board recommendations are based; necessary to a vigorous and com¬ AID EMPLOYEES FINALLY RECEIVE • the officer must have full ac¬ petitive service, a position which FOREIGN SERVICE RETIREMENT cess to all materials available to the the court decision supported. After six years of persistent ef¬ board in reaching this recommen¬ FOREIGN SERVICE ARTISTS fort on the part of the Association, dation; and This month’s JOURNAL cover is a major step forward has finally • the officer must have an ade¬ the work, of Becky Wolford, been taken by Congress on behalf quate hearing enabling him or her 17-year-old daughter of Mr. and of AID employees. The 1973 to appear with counsel before a Mrs. Richard F. Wolford. Becky Foreign Assistance Act was signed final review panel and to interro¬ won first place in the junior cate¬ into law by the President this past gate adverse witnesses and present gory in the 1972 State-USIA Rec¬ month. This bill provides that all evidence. reation Association art show and career AID employees may be¬ The specific result of the court her paintings are to be exhibited in come eligible for Foreign Service ruling is that the three plaintiffs in the Poto Mitan gallery in Port-au- retirement, and beginning in 1975 this case, who sued on behalf of Prince this year. all Foreign Service employees in themselves and other officers The Corcoran Gallery is present¬ AID will automatically be covered —about ten—currently being con¬ ing an exhibit of the work of Sheila under the Foreign Service Retire¬ sidered for selection out because of Isham, a frequent contributor to ment System. Achieving this goal substandard performance, now the JOURNAL, in February and has been a protracted uphill fight have the right to request a formal March. The exhibit is entitled for the Association. AID was un- hearing. If, after the hearing, the “Sheila Isham: Paintings 1969- enthusiastic and for years only final administrative determination 1973” and the catalog features an gave halfhearted support, but is made by State or USIA to sepa¬ introduction by Roy Slade, Direc¬ under prodding from AFSA gradu¬ rate any of them from the Service, tor of the gallery, and an insightful ally came to recognize that Foreign no further remedy will be afforded essay by Edward Fry. Mr. Fry Service retirement for AID em¬ them as a result of the present deci¬ writes, “After more than a decade ployees would not only be in the sion. Any officer so affected of quiet and persistent develop¬ interest of AID employees but also should immediately contact Tex ment, Sheila Isham has reached a of the Agency. We also had a major Harris, or Dick Finn (chairman of level of realization in her art that selling job to do on the Hill. Re¬ the AFSA Legal Committee) do is exemplary for its fusion of image peated representations on AFSA’s AFSA. and intention. Her present achieve¬ part, particularly on the Senate The court decision is of great ments—the orchestration of com¬ side, were needed to reduce sub¬ significance, not only for its hold¬ plex and subtly modulated color in stantial opposition to this move. ing that due process requires a fair paintings of monumental scale— Again this year, we worked with a hearing for officers under consid¬ are totally satisfying as perceptual number of friendly Congressmen eration for selection out because of experiences.” FOREIGN SERVICE JOURNAL, February, 1974 39 r"C> I SPECIAL Cusick entered on duty with AID SERVICES in 1967, with State in 1971, serving REAL ESTATE at Amman and Ankara before his MARRIAGES assignment to the Department. He is survived by his wife, c/o Henry FIRST OFFER FSO HOME IN SILVER SPRING. Keeler-Rochow. Prudence Gloria Ideal commuting: 9 miles from State, near Keeler was married to FSIO Joel Savaet, 4128 Windsor Road, bus, schools, shopping, Sligo Creek Park Wendell Rochow on November 17, Youngstown, Ohio 44512. recreation. Four bedrooms (or 3 plus study), in Glen Ellyn, Illinois. Mrs. Hill. John Calvin Hill, FSO, died rec rm., modern kitchen, porch, living- din¬ Rochow formerly taught at the on December 26, in Washington. ing, 2 full baths. Central air, gas heat, American International School in Mr. Hill entered the Foreign Ser¬ large fenced, treed yard, carport. Certified Warsaw. Mr. and Mrs. Rochow vice in 1947 and served at appraisal $51,000. Assume 4V2% first will reside in Washington. Bucharest, Trieste, Guatemala, mortgage, Credit Union second trust: Bangkok, Ciudad Trujillo, Santo $17,000 down. Occupy mid-June. Buy now Maurer-Belcher.Marila Maurer was Domingo and Caracas. He was as¬ and receive rental. Reply FSO Wm. Stokes, married to Taylor Belcher 111, son 8103 Whittier Blvd., Bethesda, Md. 20034. signed to the Inspector General’s of Ambassador and Mrs. Taylor Office at the time of his death. Mr. APARTMENT FOR SALE BY OWNER, LARGO AREA, G. Belcher, in Lima, on December Hill was credited by President $22,000 SPACIOUS 1-BEDROOM CONDO, lived in 15. Kennedy with working out the less than 1 year by original owner; 2nd floor with cook-out balcony; pool. Adjacent Prince BIRTHS formula for a provisional govern¬ George's Community College. By appointment ment in the Dominican Republic in Chaplin. A son, Christopher only. CALL 350-3610 EVENINGS & WEEKENDS. 1961. He is survived by his wife, David, born to FSIO and Mrs. McCoy Metts Hill. 1615 33rd St, Stephen M. Chaplin, on September EDUCATION N.W., Washington, 20007 and 27, in Washington. three children, John, Catherine and ST. JOHNSBURY ACADEMY—Coed, board¬ May. A son, Fred L.ester, born to Isabel. ing. Grades 9-12 & Post Graduate. Broad FSO and Mrs. James A. May, on Hope. Janet Barker Hope, wife of College Prep plus vocational. Small city in November 21, in Asmara. mountain environment. All sports plus FSO-retired A. Guy Hope, died on December 19 in Richmond. Mrs. camping, skiing next door. Many electives. DEATHS Individual guidance. Active social program. Hope joined the Service in 1940, Community projects. Admissions Director, Adams. Robert M. Adams, Jr., serving at Niagara Falls, Cairo, in 8 Main St., St. Johnsbury, Vermont 05819. AFSA Associate, died on June 17, Albania and Italy, and at Shanghai. in Hot Springs, Arkansas. He was At the time of her marriage in 1949 with the Public Members Associa¬ she was on the staff of FS1. Dr. COMING EVENT tion. Mr. Adams is survived by his Hope writes, “Wherever we have HOW YOU COULD BE EARNING SOCIAL wife, of Edgewater Dr., Edgewa- served, whether in F.S. and De¬ SECURITY COVERAGE NOW: By popular ter, Maryland 21037, a son, two partment positions or in the demand, this seminar, presented by Mr. daughters and five grandchildren. academic world which I have in¬ Grover J. REES, Jr., Director of Investment Bohlen. Charles E. (Chip) Bohlen, habited since my retirement as an Planning for Reynolds Securities, Inc. Ambassador-retired, died on FSO in 1964, she has made many Members of the New York Stock Exchange, will be given again on Thursday, February January 1, in Washington. Ambas¬ friends, aided many charities, 21, from 12:00-1:00 PM, in the East sador Bohlen entered the Foreign looked after many foreigners . . . auditorium, Dept, of State. Service in 1929 and served at She is the co-author of our ‘Sym¬ The seminar covers the various ways Prague, Paris, Moscow, Tokyo, bols of the Nations,' just published that YOU can qualify for Social Security Paris and as Ambassador to the on UN Day. Mrs. Hope is sur¬ benefits in addition to all your existing USSR, to the Republic of the vived by her husband, 2011 benefits. For example, did you know that Philippines and to France. He Monument Avenue, Richmond, it’s possible to merely invest your served as Deputy Under Secretary Virginia 23220. two daughters, and money—not your time or effort—and get of State for Political Affairs from her mother, Mrs. John Barker of this coverage? These TAX-FREE benefits 1968 until his retirement in 1969. Glens Falls, N.Y. include: A RETIREMENT ANNUITY (for your¬ self and family); FAMILY INSURANCE (for His memoirs, “Witness to History, Quin. Frederick S. Quin, FSO. widows and dependents); DISABILITY 1929-1969,” were published last died on January 9, in Washington. BENEFITS; FREE MEDICARE (Part I)—If you May by W. W. Norton. Ambas¬ Mr. Quin entered the Foreign Ser¬ have any further questions, please call Mr. sador Bohlen is survived by his vice in 1957 and served at Algiers, REES at 296-2770 (if no answer, call 530- wife, 2811 Dumbarton Avenue, Stockholm, Quebec and Reyk¬ 8515) or write to him c/o REYNOLDS N.W.. Washington 20007, two javik, where he was political officer SECURITIES, Inc., 1735 K Street, N.W., daughters, Avis Thayer and Celes- from 1971 until his return here last Washington, D.C. 20006. tine, a son, Charles Eustis, Jr., and October. He is survived by his a sister, Ellen, of London. Memo¬ wife, Diana Scott-Smith Quin, and Tax Services rial contributions may be made to four children, Douglas Hyder, Ali¬ either the American Cancer Soci¬ son Joan. Miles Gordon and Colin TAX PROBLEMS? It’s that time of year ety or the American Foreign Wyndham, of 11601 Virgate Lane. again. If you need professional help, call or Service Association Scholarship Reston, Virginia and his mother, write Jim Mills. I've helped many of your colleagues over the years. JAMES M. H. Fund. Mrs. John H. Quin of Rochester, MILLS & CO., CHARTERED, 1730 M St., Cusick. Thomas W. Cusick, New York. Memorial contribu¬ N.W., Suite 511, Washington, D.C. 20036, Foreign Buildings Officer, died on tions may be made to the AFSA (202) 785-9494. December 28 in Brasilia. Mr. Scholarship Fund.

40 FOREIGN SERVICE JOURNAL, February, 1974 THERE’S AN IMPORTANT

AVAILABLE THROUGH YOUR MEMBERSHIP IN THE AMERICAN FOREIGN SERVICE PROTECTIVE ASSOCIATION.

Putting it down in black and white is a big help in finding out where you stand in terms of financial security. Take a few minutes to think about your own P. S.—your Protection/Security ratio—then consider this Protection Supple¬ ment. Group Life Insurance basic $17,500 amount increasing as determined by dividends

PLUS $17,500 Accidental Death & Dismemberment insurance

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PLUS the option of enrolling for $10,000 Additional Group Life and $10,000 Additional Accidental Death & Dismemberment insurance for small additional premium.

For information on eligibility and costs, write: THE AMERICAN FOREIGN SERVICE PROTECTIVE ASSOCIATION Department of State, Washington, D.C. 20520 or 1750 Pennsylvania Ave., N.W., Suite 1305, Washington, D.C. 20006 or Telephone: 298-7570 Dodge Dart Swinger

Foreign Service personnel can qualify for special discount savings on Chrysler products! Every Chrysler product —from the Export Sales, Chrysler Corporation prestigious Imperial to a casual Dodge 9th floor, 1100 Connecticut Ave. N.W. Sportsman wagon to a low-priced Washington, D. C. 20036 200 Park Avenue compact —can be purchased through New York, New York 10017 Chrysler Export’s Diplomatic Sales Send information on your Diplomatic Sales Program at special diplomatic discount Program, and these Chrysler products: savings. PLYMOUTH DODGE All Foreign Service personnel □ Duster/Valiant □ Dart □ Barracuda □ Challenger can qualify! □ Satellite □ Coronet/Charger □ Fury □ Chrysler □ Polara/Monaco And we’ll arrange fast delivery here □ Chrysler Imperial or in other countries, through either our Washington, D. C. or New York offices. Name Return the coupon for full details. Address Or telephone: (202) 296-3500; City

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