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October 1996 I Vol. 73, No. 10

COVER FEATURES

Focvs ON US DRUG POLICY THE RELUCTANT ENVOY / 46 20 / IN WASHINGTON, MAINTAINING PRESSURE Poet, Francophile, Renaissance Man Barlow: Using Diplomatic Tools: Bit Player on Americas Diplomatic Stage Certifying, Seizing, By Richard Gilbert Pushing Eradication By W. Kenneth Thompson Focus and Harry W. Shlaudeman

28 / IN ASIA, BATTLING WARLORDS At Cold War’s End Complex Geopolitics Spurs Heroin Supply By Alfred McCoy

34 / IN LATIN AMERICA, QUELLING CHAOS Despite Crackdowns, Page 20 Cartels Now Stronger, More Influential By John Sweeney

40 / IN BOLIVIA, BUCKING TRADITION Crop Substitution Sparks Bitterness Among Campesinos COLUMNS By Karen Krebsbach PRESIDENT’S VIEWS / 5 Facing Consolidation, Act II By F.A. “Tex” Harris DEPARTMENTS SPEAKING OUT / 15 7/LETTERS The FSO’s Workaholic Mentality 12 / CLIPPINGS By James R. Bigus 51 / BOOKS POSTCARD FROM ABROAD / 60 55 / IN MEMORY Guinea on My Mind 59 / INDEX TO ADVERTISERS By Lap Ngo

Cover and inside illustrations by Glasgow & Associates “Postcardfrom Abroad”stamp courtesy of AAFSWBookfair “Stamp Corner”

FOREIGNOEEMGE THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS _I_J II I H N A I K ' Foreign Service Journal (ISSN 0015-7279), 2101 E Street, NW, Washington, D.C. 20037-2990 is published monthly by the American Foreign Service Association, a private, non-profit organization. Material appearing Editor Editorial Board herein represents the opinions of the writers and does not necessarily represent the views of the Journal, the KAREN KREBSBACH SHELDON KRVS, Chairman Editorial Board or AFSA. Writer queries are invited. Journal subscription: AFSA Members - $9.50 included in Assistant Editor TERRENCE BROWN KATHLEEN CURRIE annual dues; others - $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical JUDITH HENDERSON postage paid at Manchester, NH, and at additional mailing offices. Postmaster: Send address changes to Art Director DAVID I. HITCHCOCK TARA FISHER Foreign Service Journal, 2101 E Street NW, Washington, D.C. 20037-2990. Indexed by Public Affairs LISA BOBBIE SCHRIEBER HUGHES Information Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. Advertising & Circulation MARK MATTHEWS Manager DANIEL O. NEWBERRY Advertising inquiries are invited. The appearance of advertisements herein does not imply the endorsement of MARIA I. SAN JOS6 ARNOLD SCHIFFERDECKER die services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E-MAIL: [email protected]. TELE¬ Editorial Assistant ANNE SIGMUND PHONE: (202) 338-4045. © American Foreign Service Association, 1996. Printed in the U.S.A. Send address SHARNA MARCUS changes for the Foreign Service Journal to AFSA, 2101 E Street NW, Washington, D.C. 20037-2990.

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Another election season is upon Conventional wisdom sees a Clinton us. And once again, except for No longer simply a II administration in the offing and a Iraq, it is devoid of meaningful Congress returning with Republican foreign policy debate. Instead, foreign device to eliminate majorities, albeit slimmer ones. If a split affairs professionals’ minds are already government occurs again, the deep fis¬ turned to transition tactics — how to diiplica tire fi u i e lions sures leave few items of mutual agree¬ obtain adequate resources for die 150 ment except for old faithful — cutting foreign affairs account in an era of and costs, agency tiie federal non-defense, discretionary declining f ederal funds and how to deal budget even more. To their credit, with a repeat attempt to reshape and amalgamation is a Secretary of State Warren Christopher, consolidate die foreign affairs agencies. deputy Strobe Talbott and Brian The Senate Foreign Relations major symbol of Atwood, head of tiie U.S. Agency for Committee staff is drafting a fiscal 1998 International Development, are work¬ foreign affairs authorization bill, which political victory: ing now with both Congress and the will again focus on downsizing and con¬ Office of Management and Budget to solidating the foreign affairs agencies. find additional resources. It’s like The first time last year, with the climbing Mr. Everest in a snowstorm. Helms/Gilman proposal, the White What is needed? The foreign af fairs House countered with equal fervor, eign affairs professionals have been structure is important. Efficiency, com¬ refusing to even negotiate with pushed off tire payroll. mand and control are critical. But Congress on the issue. Stalemate A study last year by die State before serious work can begin on these ensued after an energy-draining strug¬ Departments Inspector Generals issues, clear goals for 21st century gle failed to address and illuminate the office concluded that funding and staff diplomacy need to be set. That means real, core issue: nationally agreed-upon time at the 10 largest U.S. embassies doing the hard work of setting national foreign policy goals. were not being used to achieve their priorities. As a wise observer once No longer simply a device to elimi¬ goals. These results were depressing. noted, where everything is important, nate duplicative administrative and Major resources were not going to the nothing is important. President program costs, agency? amalgamation missions’ top priorities, but instead to Clinton, Christopher, congressional has become a major symbol of political old Cold War activities. The world had and administration leaders, and the victory. It mask, as well, some deep changed. America’s goals had changed. nation as a whole, must first decide Republican-Democratic disagree¬ U.S. embassies had defined the right America’s long-term foreign policy pri¬ ments over foreign policy priorities and objectives, but U.S. resources and per¬ orities. That being done, proper struc¬ programs. Meanwhile, the costs of sonnel were stuck in a Cold War pos¬ tures and personnel plans can be devel¬ political stalemate are staggering. ture, because the command and con¬ oped to accomplish those priorities. Needed reforms have not been under¬ trol system could not focus the work of American diplomacy must move taken, funding has been cut, significant file 50 or so U.S. government agencies beyond political stalemate and narrow¬ programs have been slashed or elimi¬ on the diplomatic front lines. Whatever ly focused short-term funding expedi¬ nated, and skilled and experienced for- tiie overarching goals, policies and pro¬ encies, which only provide bad foreign grams set by die incoming administra¬ policy choices. Too much of America’s F. A. “Tex” Harris is president of the tion, the tools essential to carry them future prosperity and security? is at stake American Foreign Service Association. out are being wasted. to do it wrong. H

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The Service You Deserve FOR INFORMATION CALL 703-527-4409 OR FAX 703-516-4369 4650 N. Washington Boulevard, Arlington, VA 22201 To the Editors: Congratulations! cers. My special favorite, however, was Let me commend the Journal fic¬ Jack H. Shellenberger Antonia Steams’ “Like a Rock” and tion contest entrants who made the cut Retired FSO dre “advanced case of ADDs.” and the Editorial Board for its selec¬ Great Falk, Va. Congratulations to our colleagues tions. I found all six pieces absorbing and to your Editorial Board for a great and evocative, since some of tire local¬ issue. ities I’ve experienced firsthand. John W. Limbert Kudos also to Jason Levinson, To the Editors: Deputy Chief of Mission whose apt illustrations for each selec¬ Many thanks for the fine short sto¬ U.S. Embassy Conakry tion were stories in themselves. ries in the Journal fiction issue. They Having entered the Journals 1996 had all the delightful stereotypes that “Call for Fiction” myself — and then are so politically incorrect these days: seeing the quality of tire selections — virile Marines with tatoos; frustrated To the Editor: makes me realize that I’ve got some single women officers; insufferable John Underriner’s article, “Of way to go to be as competitive. DCMs; and bumt-out USAID offi¬ Elephants and Insects” (August Test Your Wit The Jou rnal is planning an issue on tire role of wit and humor in diplomacy. Diplomats interested in testing their own wit and humor are invited to respond to tire challenge below. The best answers will be published in an upcoming Journal. As FSOs know, U.S. embassies often receive inappropriate demarche instructions. As the political officer in a small, poor country bordering the Sahara, you receive a State Department cable instructing you to deliver a demarche to tire Foreign Ministry, announcing U.S. concern about high tariff restrictions on imported sand from U.S. companies. Although this coun¬ try has plenty of its own sand, you are required to make the case for several Nevada sand exporters. Please suggest a 50-word demarche (typed in the space below or on a separate piece of paper):

Name Active FSO Retired FSO Former FSO Never have been FSO Title, if employed: Post/home address/company Phone Fax E-mail

PLEASE FAX BACK THIS FORM AND ATTACHMENTS ASAP TO (202) 338-8244. Final Deadline: Nov. 15. No e-mails, please. Anonymous submissions will not be used. Contributors will be notified if their responses will be published.

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8 FOREIGN SERVICE J O V RN A L/O C T O B E R 1996 LETTERS Refugees International Chair - Richard Holbrooke gations who invited themselves at the President - Lionel Rosenblatt right time to enjoy box seats at die Treasurer - Shep Lowman Opera Ball (at no cost to themselves) know that? From the Rwandan refugee camps of Central Africa to As long as die Foreign Service the minefields of Cambodia, Refugees International deliberately creates the picture diat all (RI) is working to secure the safety and well-being of is wine and roses, we can’t blame legis¬ refugees caught in the midst of humanitarian crises. lators for believing us. To preserve our independence, RI accepts no govern¬ Dan Gamber ment or UN funding. We rely on internationally- Retired FSO minded individuals who understand and value REs Amman, Jordan unique brand of activism. You can help support the work of RI through your workplace CFC campaign by choosing #1448, by To the Editor: selecting the “donor option” in your local United Way Your focus articles on the campaign, or by sending a contribution to RI directly. International Monetary Fmid (IMF) Your gift can make a life-saving difference. and the international development banks (June Journal) could not have Refugees International, 21 Dupont Circle, NW been more thoughtful nor timely. Washington, DC 20036 There is anodier major daw in die Tel (202) 828-0110, Fax (202) 828-0819 conception and management of die development banks diat ought to be highlighted. This is that of non¬ accountability. What happens to the money after it is “loaned” to foreign Freighter Cruising! governments? The fact is that we don’t know what happens because die U.S. Freighter World Cruises, government, which is almost certainly Inc. is the largest agency die major donor, does not perform in the country dedicated audits, inspections or evaluations of to freighter travel. We projects financed witii international development bank “loans.” Credible are North American Gen¬ audits and inspections might reveal eral Passenger Agent for some big surprises. fourteen international It might also be interesting to know shipping lines and repre¬ if die development banks operate with sent others as well. Our repaid loan refiows, or, after 40 years, twice-monthly news¬ do they still have to be recapitalized by letter, the Freighter Space donor governments? Advisory, lists cabins, rates & itineraries available. Marion H. Ford Retired FSO One year Paris, Texas subscription

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 9 OUR SERVICES BEGIN LETTERS THE DAY YOU CALL! Your Best Resource for Quality Cost Effective Temporary Housing at Hundreds of Locations in D.C., Maryland, and Northern Virginia Brouillette’s letter in the July Journal accounts of the remarkable lives and lamenting Under Secretary for tragic deatiis of Bob Frasure, Fred Management Richard Mooses postu¬ Cuny and Barbara Schell. Frasure s late that “we have to get away from the death resulted from a tragic accident, notion that tire Foreign Service is a which would not have happened had lifetime vocation.” I joined when we gotten seriously involved in Bosnia President John F. Kennedy’s “Ask not much, much earlier and had followed ...” exhortation still had meaning. I Cunys precept of identifying the deeply sympathize with FS aspirants aggressors and inventors of “edmic like Brouillette who seek to serve their cleansing” who caused so many civilian country through a full career in the deatiis and displacements. Cunys Foreign Service, but see that possibili¬ death was a tragic murder, from which ty' disappearing. I draw the lesson diat we were Once upon a time the Service was extremely fortunate diat die Cold War merit-based and, once in, one could never turned into a conventional hot generally look forward to a fairly long war, given the brutality toward civilian career and a respected retirement. populations demonstrated in The Services merit basis now exists, Chechnya by our adversary. unfortunately, only in the letter of tire And Barbara Schells death was law. Over the years, tire “realities” of nodiing less than a tragic atrocity. It did • Flexible Arrangements for Short-term the day have intervened. The State not result from unfortunate, but inad¬ stays: Nightly, Weekly, Monthly Departments personnel system is dri¬ vertent “friendly fire,” when our mili¬ • One, Two and Three-Bedroom ven by' budget stringencies, downsiz¬ tary forces mistakenly target dieir own Apartments Plus Private Homes or Townhomes ing fashions, lawsuits on gender- and comrades in a combat situation. The • Variety of Housewares, furniture and minority-preference issues, and other deaths of Schell and die others aboard accessory options plus maid service non-merit factors such as States lowly the two helicopters resulted from an • Cable, Utilities, Washer/Dryer and status in the eyes of the White House insane policy of “shoot first and figure phone service included Office of Management and Budget out what’s going on later,” instead of • Special residences for those with pets (OMB) and on Capitol Hill. I would demanding die utmost restraint from • All major credit cards accepted urge aspirants like Brouillette to keep trigger-happy pilots and their con¬ • Resort recreation: swimming pools, their eyes open as to what is really trollers. What if die helicopters had spas, tennis courts, fitness centers going on. been Iraqi or Russian or Iranian or • Packages available for every budget But U.S. political and budgetary North Korean? What or whom were • Tot lots for the children leaders ... continue to starve die depart¬ they endangering? Why not follow • Walk to metrorail at select locations ment, which, in turn, twists, turns and them to their destination to find out to • Rates and amenities vary by location dirashes around to beggar itself and die whom tiiey belonged and what diey FOR INFORMATION Service ever more. A sad picture. were up to? The Pentagon owes us all D. Thomas Longo Jr. a much better explanation and a rever¬ AND RESERVATIONS Retired FSO sal of policy for such situations. CALL TOLL-FREE Ocean City, Mel, Robert V. Keeleij Retired FSO 1-800-933-8367 or 703-271-8033 Washington, D.C. FAX 703-271-8039 To the Editor: I read every issue of your fine mag¬ rporate azine thoroughly, but not until sum¬ To the Editor: .Executive TEMPORARY mer vacation, when I absorb all 12 Just a quick note to tell you how HOUSING issues of the previous year. This much I enjoy reading die Foreign INC . accounts for my belated response to Service Journal in die office. As the your January issue with its stirring foreign affairs legislative assistant to

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Rep. Amo Houghton (R - N.Y.), who is one of the few moderate Republicans most on the House International Relations Committee, the Journal has been invaluable to me. important My boss and I have become quite dismayed over the extreme and bitter partisanship that has dominated U.S. investment policy lately — particularly when it seems that everyone is trying to bal¬ “Something about this place ance the budget on the backs of the rtith the State Department and U.S. Foreign pushes you Service officer's. I sincerely hope the in the right direction. ” pendulum swings back our way soon, management and politics will once again stop at the His family’s moves meant Sam had waters edge. attended several different high schools. Bob Van Wicklin projessionals His grades had been “bad” in those Legislative Assistant for International Relations where there were large classes and he Office of Arno Houghton, you trust. was lacking self-confidence. After he R-N.Y. and his parents visited five local Washington, D.C. ■ JRental am) Management independent schools, Sam chose of "Fine “Properties in Chapel HUl-Chauncy Hall School Northwest “DC, CheVy Chase, because he liked its campus and FOREIGN “Bethesda and Potomac friendly atmosphere. Once enrolled, SERVICE his attitude changed. “I started getting EXAM? muminmin good grades in English class, and that boosted my confidence.” He also The Foreign Service Review, Inc. will again be offering courses to AAA began to participate in sports. “I'd prepare students for the Written never liked sports before, but I tried 1 Exam. At the last Written Exam, soccer and became captain of the JV our students had more than twice team.” Sam made the honor roll for the the pass rate of unprepared candidates. Our Orals courses are first time and began writing poetry and just as effective. For a copy of our BIBIIBS short stories and keeping a journal ■ brochure contact our office or our in his spare time. web site, http:/www.cfcl.com/"fsr. Executive Housing Written Exam Courses Consultants, Inc. Chapel HUl-Chauncy Hall School is Austin, TX Oct. 18-20 7315 Wisconsin Avenue an independent school for boys and Minneapolis, MN Oct. 25-27 Suite 603 East girls in grades nine through twelve. Washington, DC Nov. 1-3 Bethesda, Maryland 20814 San Francisco, CA Nov. 8-10 Please call to arrange your 301/951-4111 Orals courses begin in January. Fax: 301-907-7329 son’s or daughter's visit. Foreign Service Review, Inc. email: [email protected] Chapel Hill-Chauncy Hall School POB 49998, Austin, TX 78765 “We care Jor your home 785 Beaver St., Waltham, MA 02154 (512) 303-5035 [email protected] (617)894-2644 • (617)894-5205 fax as if it Were our oWn. ” httpr/www.cfcl.comTfsr

OCTOBER 1996/FOREIGN SERVICE JOURNAL 11 CLIPPINGS

THE FOREIGN SERVICE, The need for such courses grew out of the rapid democratization in AT MIDDLE AGE the former Eastern European com¬ The U.S. Foreign Service is begin¬ munist countries, USIA Deputy ning to lose its image as a white male Director Penn Kemble told the enclave, writes Sarah Jackson-Han in Minneapolis Star Tribune in July. “We an August story for the Paris-based started to get queries from people wire service, Agence France Presse. overseas as these countries were “Long viewed as a sinecure for well¬ going through their own transition,” born white men, the U.S. Foreign Kemble said. People in the former “One of the Service ... has begun to reflect domes¬ East Bloc countries want to know tic populations that are older, more how they can develop education on things that real- ethnically and racially diverse, and these subjects when “they don’t know ly helps me is more likely to change careers than what the words mean. They don’t ever before.” know what these institutions are,” knowing... how According to the State Department, said Kemble. USIA sponsors civics t° [problem- anecdotal evidence suggests new classes training programs in the Russian of FSOs have steadily grown to include Federation and six other former solvers] atten¬ more women — up to 40 percent of Soviet bloc countries. tion focused on some entering classes — and minorities. Nonetheless, writes Jackson-Han, cm issue, before “more than three-quarters of senior DICK MOOSE RESIGNS it gets ground positions still go to white men.” She also reports that the median age of AFTER ALLEGATIONS to pieces or entering FSOs has risen from 25 to 35 Shortly after the State delayed unduly in the last 20 years. Department Inspector General’s Office began investigating allega¬ by the tions that State’s Under Secretary bureaucracy." DEMOCRACY 101 for Management Richard Moose was increasingly traveling overseas TAUGHT IN BOSNIA with a staff member with whom he — /4.S. /Iwtissi/to// Democracy is a new concept in was having an affair, Moose Bosnia, a former part of the commu¬ resigned his appointed position, TO CHIA I JIM SASSER, nist Yugoslavia, so it makes sense that according to The Washington Post THE HILL. JULY St. Bosnian teachers would need a crash on Aug. 24. course in teaching the principles of Moose, who declined comment, SPEAK!SC, AIIOI T IIOIY democracy. But thanks to the efforts will head a study on the impact of HIS 12 YEARS AS A this summer of two Minneapolis, declining U.S. government spend¬ Minn., civics teachers, Gail Huschle ing on foreign policy at the Council TEXXESSEE SI: XATOR and Joan Beaver, those teachers in on Foreign Relations in New York III I.run IIIM Bosnia became students of democra¬ City. State officials said that Moose cy themselves under “Project decided to resign after acknowledg¬ AS A DIPLOMAT Citizen,” sponsored by the U.S. ing a consensual relationship with a Information Agency (USIA). female staff member.

12 FOREIGN SERVICE J O U R N A L/O C T O B E R 1996 CLIPPINGS

ON COVERAGE tax-exempt, non-profit fund, was estab¬ TV lished to help the families, but contri¬ & FOREIGN AFFAIRS butions have not met the high demand It’s no wonder Americans are among of the victims’ survivors, according to the poorest informed among world peo¬ Commerce spokeswoman Judith ples when it comes to world events. TV Barnett. news, the main news source for a major¬ Donations may be made to the ity of Americans, often gives short shrift Commerce Employees Fund, c/o YEARS AGO to foreign affairs, according to TV Guide Federal Employee Education and for the week of Aug. 3-9. “Don’t kid Assistance Fund, 8441 West Bowles yourself,” said CBS News anchor Dan Ave., Suite 200, Littleton, Colo., “Favorite meeting place Rather in an interview with writer Neil 80123-3245. of Foreign Service men in Hickey. “The trend line in American the Nation’s Capital. Four journalism is away from, not toward, blocks from the increased foreign coverage.” US CRYS POOR OVER Department of State. Major foreign news stories are cov¬ Convenient to all points of ered bv “parachute journalists,” particu¬ ITS DEBTS ABROAD interest in Washington, larly television reporters, who drop in to Foreign affairs spending cuts have D.C. Exclusive Men’s Bar. a foreign locale to cover the breaking compromised U.S. security' by slowing Famous food. Coffee news event and then fly out. Stephen efforts to combat nuclear, biological Shop. Gay Cocktail Hess, author of the recent International and chemical threats by rogue coun¬ Lounge. Ah' Conditioned News and Foreign Correspondents, tries and terrorists, according to an in the summer,” claimed notes that television reporters “are bril¬ opinion piece by freelance journalist an advertisement for the liant for 72 hours. But [if you] tune in a Lucy Komisar in the Aug. 26 Christian Mayflower Hotel, in week later, you realize how thin their Science Monitor. Washington, D.C., in tire understanding of the story is.” Spending cuts prevented the United October 1946 Journal. States from hiring a specialist to monitor Another section of the nuclear procurement in Iran, Iraq and Journal reprinted part of a COMMERCE RENEWS Libya and from holding seminars on ter¬ Washington Post editorial: rorism, she wrote. “A contributor whose let¬ FUND FOR FAMILIES The United States has not been ter appeal's in another col¬ Five months after the military plane forking over its share of funds for vari¬ umn sees danger that the carrying Secretary of Commerce Ron ous international agreements, includ¬ higher salaries now autho¬ Brown crashed in Croatia killing all 35 ing its first installment of $200,000 to rized for ambassadorships on board, the Department of pay for a U.S.-negotiated agreement to may encourage their use as Commerce has renewed its appeals for help North Korea into a nuclear pro¬ political plums. ... Our donations to help the families of the vic¬ gram safeguarded by the International diplomacy has been clut¬ tims. according to an Aug. 29 article in Atomic Energy Agency and its more tered in the past with some The Washington Post. than $1 billion bill for its share of U.N. pretty sad examples of Some victims did not have life insur¬ peacekeeping. political rewards to incom¬ ance and government benefits have She puts the blame on both parties, petents, social climbers proved too meager to meet their fami¬ saying that both the Republicans and and outright schemers.” ■ lies’ expenses, according to the Post. the Clinton administration have called After the crash, Operation HELP, a for cuts in the foreign-affairs budget,

OCTOBER 1996/FOREIGN SERVICE JOURNAL 13 CLIPPINGS

and only Hill Democrats support it, expensive to build and maintain, and which has been dropped to $18.3 bil¬ make “poor goodwill ambassadors,” “The reason lion, less than half that of the height of reported Mitchell Pacelle in the Aug, the Cold War. 1 Wall Street Journal. A new genera¬ for having Concluded Komisar: “What lop¬ tion of embassies in a dozen foreign diplomatic sided priorities, what blindness verging countries, built to withstand bombs on the criminal has caused the people and terrorists, is safe but expensive, relations is not who determine America’s budget to writes Pacelle, who estimates that the to confer a fund fantasy and pork-barrel defense new embassies cost $3 billion to procurement that even the Pentagon build. compliment, says it doesn’t need, while putting Building safe embassies that are but to secure a Americans in mortal danger of the ter¬ perceived as inviting by host country rorist and other societal threats we see citizens has become a real challenge, convenience. ” around us, stripping us of resources to agree U.S. officials. “We want a build¬ deal with the real world?” ing that conveys that free and open nature of American society, yet it has — BRI TISH PRIME to be secure against terrorism,” noted MINISTER WLXSTO.X ‘SAFE’ EMBASSIES Patrick Collins, of the State Department’s Office of Foreign CIR RI HILL, 1949 ALSO MORE EXPENSIVE Buildings Operations, who said that Bunkerlike embassies may keep out new embassies are designed to meet unwanted terrorists, but they’re both objectives. ■

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14 FOREIGN SERVICE J O U RN AL / OC TO B E R 1 9.96 SPEAKING OUT The FSO’s Workaholic Mentality

BY JAMES R. BIGUS

Though workaholism may be boasts one of its largest chapters in prevalent in each of this soci¬ Washington, D.C., die compulsion to ety’s professions and jobs, The compulsion to work is beyond die control of die there’s no work like a diplomat’s work work is beyond the addict. When an organization has a crit¬ to provide more excuses to feed the ical mass of workaholics, die entity itself workaholic mentality. With the need takes on the characteristics of the for round-the-clock availability and addict s control workaholic. In advanced stages, worka¬ long office homs, diplomats can be so holics neglect physical and emotional fatigued and stressed that workaholism says Workaholics healtii to spend more time at work, and can become a singular source of family Anonymous, whose invite ulcers, high blood pressure and problems. The long-term and even depression, which, unattended, can more serious consequences include Washington, D.C., lead to more serious problems, such as inefficiency, physical and spiritual stroke. In Japan, where workaholism burnout, and even death. chapter is one has been honed to an art, there is even How can work do so much harm? a word for deadi from overwork: Aren’t hard workers productive and karoshi, which the Japanese Ministry of admired in tire Foreign Service, rising of its largest. Health and Welfare says is responsible to tire top of tire system by virtue of for 10 percent of all deatiis of working their relentless toiling? Aren’t they men in Japan. “responding to the needs of the Who are likely victims of karoshi? Service” during this era of downsizing, According to Diane Fassel, a manage¬ when we all have to do more with less? ment consultant and author of The late Philip Habib, fonner special required. And most who join the Working Ourselves to Death, worka¬ Middle East negotiator in the Reagan Foreign Service find their work stimu¬ holics fit into four categories: compul¬ administration, and by any account one lating and accept drat demands on their sives, who come to work early, leave of the most successful FSOs in modem time will be greater dian that required late, take work home on weekends and history, has often been quoted as fire in die average job. The term ‘worka¬ vacations; binge workers, who work original source of dris perhaps apoc¬ holic” may be more often used for non-stop for days, then crash; closet ryphal axiom of Foreign Sendee life: someone who loves his work, but dieres workers, who meet their families’ “If your [spouse] is not nrad at you for little problem if die worker understands demands for more quality time by tak¬ working too many long hours, you’re when to stop. The real trouble begins ing work home or on vacation, tiien get not working hard enough.” when borders dissolve between work their fix in stolen, secret moments; and What FSO does not know dre mean¬ and odier aspects of life, and when anorexics, who compulsively alternate ing of workaholism? Most of us are workers’ lost perspective develops into between procrastination and preparing more than willing to work long horn's, if an mihealtiiy addiction to work. to work, finally finishing it at the moment before die deadline, when it James R. Bigus, an FSO who is deputy Like addictions to alcohol, drugs, has reached the crisis level. director of the Office of Democracy, food and gambling, workaholism As the disease of workaholism pro¬ Human Rights and Labor at the State has its own 12-step program and body gresses, writes Fassel, it can manifest Department, has also served in of literature. According to Workaholics itself in low self-esteem, in die inability Almaty and Riyadh. Anonymous, which, not surprisingly, to relax and in die inability to say “no”

OCTOBER 1996/FOREIGN SERVICE JOURNAL 15 """ \ SPEAKING OUT [ How to Buy Auto Insurance Overseas There’s really only one way. Select the agent who offers broad experience and a high level of repeat business. Experience that helps you avoid the pitfalls of a highly complex business. Repeat business that results from pro¬ viding what’s best for the customer - not the agent. to additional work requests. Of course, most professionals exhibit For 34 years Harry M. Jannette International has provided dependable one or more of these characteristics coverage with U.S. earners to thousands of Foreign Service personnel world¬ occasionally, but its only when they wide. Thus, you gain the broadest U.S. terms and conditions and flexible lose control that they’re in danger of value limits often not available from other insurance carriers. becoming addicts, Fassel says. • WORLDWIDE COVERAGE Fire, theft, comprehensive and collision protec¬ So what does this have to do with tion are available at foreign posts. the Foreign Service? The nature of an FSOs work requires round-the- • U.S. AUTO LIABILITY Available for short term on home leave, change of clock availability, often at odd assignment, and new auto purchase prior to foreign departure. hours, to respond to breaking devel¬ FOREIGN LIABILITY We suggest contacting your post on arrival. Local opments, and for most FSOs, its laws require specific limits and coverage. Pricing is normally best on site. exciting to participate in making CONTACT US TODAY Let us send you “the Embassy Plan” brochure. It history. But too often they find contains all the answers about dependable coverage and low cost premi¬ their personal time invaded not for ums. unfolding history, but for handling tempests in the bureaucratic teapot. Harry M. Jannette International This is the point at which FSOs 8111 LBJ FREEWAY, SUITE #585 DALLAS, TEXAS 75251 need to see boundaries. The worka¬ TELEPHONE: (214) 783-4915 FAX: (214) 783-0545/ . holic FSO achieves the same rush CALL: (800) 256-5141 V#J from the teapot as he does from b A W00D-WILS0N COMPANY V making history. This logic can be taken to absurd lengths. In Post Office, a novel writ¬ ten in the 1970s about a government MARTENS VOLVO agency not unlike the State Department, Charles Bukowsky Dedicated to Diplomacy recounts a scene which my postal Worldwide Delivery to Diplomats worker friends say is frighteningly accurate: A workaholic manager and Members of International Organizations tells his staff that since some mail they sort is destined for the troops in Vietnam, delivering the mail is con¬ tributing to the war effort and any less-than-workaholic performance is equal to treason. Although no one’s heard of an FSO accused of treason for refusing to spend another hour perfecting a demarche, I have heard our own version of workaholic machismo echoing in Foggy Bottom and in embassies around the world. “I worked 14 hours yesterday,” one Contact: Dana Martens, Diplomatic Sales Director FSO might say, only to be answered by, “Well, I worked 16.” My person¬ VOLVO 202-537-3000 al favorite, however, is “I have four CARSMARTENS OF WASHINGTON, INC. Pax 202-537-1826 4800 WISCONSIN AVE. WASH.. DC 20016 months of unused home leave,” to U.S.A.’s Largest Diplomatic Dealer which the standard answer is, “Oh, yeah, well I have six months.” The

16 FOREIGN SERVICE ] O U RN A L/O C T O B E R 1996 SPEAKING OUT 11 “Sane mind in an insane world." — Garrett Hardin H “fascinating... no one has described so compellingly the implications of continued population growth" — The Hon. Gaylord Nelson H "a classic... the most probing analysis yet available..." - George Woodwell H "...the best and most clearly written discussion yet." - Rep. Anthony Beilenson message is clear in this FSO version of proving your manhood: Work long JUGGERNAUT hours, don’t take vacations. It’s not Growth on a Finite Planet exactly like saying you’ve loaded 16 tons of No. 9 coal, but it does convey Lindsey Grant (FSO Retired) examines the human strength and manly dedication in a condition as the tribe nears the limits of the Earth’s ability to language that all FSOs understand. support it, discusses the ambivalent role of technology, the uses Still, more important than show¬ and limits of conservation, and the value of systematic foresight. ing brawn, workaholism serves to He relates population growth to current world energy, nourish FSOs’ egos and feed their environmental, and social issues and to U.S. policies on sense that their work really matters. agriculture, immigration, unemployment, welfare and health For workaholics, the internal dia¬ care and - of particular interest to JOURNAL readers -- foreign logue goes something like this: “If I policy, trade and aid. He proposes specific changes. don’t stay until 11:00 p.m., the bilat¬ “Economists say we must grow out of our problems. We eral relationship between the United cannot grow out of them, not at this stage of human history." States and the Republic of Anthuria will collapse. Or it won’t be done Seven Locks Press right.” Most workaholics believe the world would stop turning without PO Box 25689, Santa Ana CA 92799 their vital contributions. We’ve all Hard cover $24.95.Paperback$18.95. At bookstores or800-354-5348 seen workaholic perfectionists ago¬ nize over an adjective or adverb in a memo until it’s so old it’s no longer usable since its content is now OBE, or overtaken by events. This would all be amusing if it weren’t so costly. Workaholism costs PVT l /X organizations money because worka¬ holics may not be efficient workers, according to Diane Fassel. Although NATIONAL TEMPORARY their compulsiveness and long hours look good in the short term, tired APARTMENTS, INC. workers make more mistakes and Short-Term Furnished Apartment Specialists take more time correcting those errors, she says. Their inability to pri¬ Comfortable oritize — a classic feature of the Fully furnished one, two or three bedroom apartments to your specifications. addiction — can generate needless All linens, towels, kitchenware and other amenities provided. crises and result in worker burnout. Still, in many Washington offices Cost Effective and in embassies and consulates Far less expensive than most hotels or suites. overseas, weekends and holidays are Convenient just regular work days. With no bot¬ Locations all around Washington, D.C., Northern Virginia and Maryland. tom line with which to measure prof¬ its, as in the private sector, it’s harder One phone call and we do all the work. to measure efficiency in work and how necessary the extra hours really (301) 495-8927 are. Given the nature of diplomacy, (30 day minimum stay) tangible results might not be seen for years, if at all. But the prevailing 8737 Colesville Road, Suite 302, Silver Spring, MD 20910 ethos is this: If an FSO is spending

OCTOBER 1 996/FOREIGN SERVICE JOURNAL 17 14 hours a day in the office, he must seeking an assignment at an overseas be accomplishing something impor¬ post headed by a well-known worka¬ tant. But we all know from example holic ambassador who schedules that this is not necessarily true. weekly staff meetings on Saturday. • Furnished studios to Even more frightening than the It’s hard to imagine management 3 bedroom residences workaholic individual is the worka¬ seriously taking on workaholism as a • Minimum 30 days holic manager — the workaholic ver¬ problem, even though encouraging a sion of the drunk behind the wheel. high quality of life for employees is • Rates within per diem Knowing no borders in their own supposed to be an important facet of • Fully equipped kitchens lives, they respect none in those of reinventing government. Still, how their staffs. Morale is an alien con¬ can die State Department expect to • Individual washers/dryers cept since they are getting their work meet downsizing challenges with • Cable T.V. & local phone “fix.” With enough workaholics in more work and an increasingly included management, the entire organization demoralized, overworked staff? It takes on the values of workaholism, will be up to FSOs, the workers, to • Utilities included says Fassel. In Working Ourselves to tip the balance from workaholism to • Optional Maid service Death, she uses the example of the healthy work habits. First, FS employees who suspect • On site fitness center & human services agency that hired her memberships to local health to mediate a conflict among person¬ they may be workaholics can call the clubs nel. “Upon investigation, it appeared Washington chapter of Workaholics the workaholics were furious with Anonymous at (202) 828-1997. • Pet friendly locations other staff because they only worked Second, learn to set boundaries for • Major credit cards accepted 40 hours a week and took vacations work and personal life. Most of us with their families,” she writes. “The want to go the extra mile to accom¬ • One statement billing workaholics were adamant that the plish work goals, but we all know that • Locations in Virginia, other workers were not as dedicated management’s demands are not Maryland and D.C. close to as they were. They accused them of always reasonable. The more new NFATC laziness and falling down on the job. employees who insist on setting lim¬ In my sessions with the staff, I found its, the easier it will be for all of us Virginia Locations the 40-hour-a-week people to be who are in the Foreign Service. Annandale, Arlington, Ballston, hard-working. The difference Of course, there are risks: limited Courthouse, Crystal City, between them and the others was advancement, rumors branding us as Fairfax City, Falls Church that their job was not their life. This slackers, the vengeance of a worka¬ Maryland Locations attitude infuriated the workaholics. holic boss who pens reviews intend¬ Bethesda, Gaithersburg, Rockville, ... It is a good example of how this ing to punish us. The review won’t Silver Spring disease ... is dysfunctional and the mention we refused to work Sundays District Locations people perpetuating it are sick.” and holidays, or that we requested Dupont Circle, Foggy Bottom, Upper time off to attend to our families; Northwest, Waterfront It’s difficult to judge whether the rather, in the reviews “room for entire State Department is a improvement” section, it will be Inquiries (703) 506-3993 workaholic organization, but some noted we could have “shown more (800) 776-5057 offices and missions certainly are. dedication.” FAX (703) 506-3997 For example, when deep budget cuts It’s pointless to tell workaholics forced the closing of post communi¬ to “get a life.” They already have LET US SHOW YOU HOW cations units on Saturdays, many the one they want. It’s up to the rest WE OPEN DOORS TO HOMES FSOs were faced with, for the first of us to make sure that we have the AWAY FROM HOMES! time in decades, the challenge of life we want, and that includes finding something to do on a being well-rounded human beings, 8230 Old Courthouse Road Saturday. It was a dilemma for them. which will also make us better FS Suite 450, Vienna, VA 22182 And I was once warned away from employees. I

18 FOREIGN SERVICE J O U RN A L/O C TO B E R 1996 FORD j LINCOLN FORD Mercury @ DIPLOMATIC SALE

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IN WASHINGTON, MAINTAINING PRESSURE rri he nation’s war on drugs, tained without limiting supply, so abandoning that first declared by President effort is also not a realistic option. Absent legalization Richard Nixon a quarter of a or some radical form of decriminalization, an unlikely century ago, has not been prospect, efforts to limit both will continue. —receiving favorable reviews America’s hard drug of choice is still cocaine. When lately. Congress is not happy. Even prominent conser¬ die government or media use the term “drug problem,” vative editor William F. Buckley has proclaimed from it would be more accurate to say “cocaine problem,” or the cover of National Review “the war on drugs is lost” better yet, “crack problem.” The selling, buying and and has urged that hard drugs be legalized. using of crack, die smokable and most highly addictive Although public support for legalization is scant on form of cocaine, fuels much of the violence in the Capitol Hill and among Americans nations inner cities. It also gener¬ — less than 15 percent, according ates much of the revenue. Coca to a recent Gallup poll -— a large leaf, cocaine’s raw material, is only and respectable body of opinion grown hi the three Andean coun¬ asserts that Americas efforts to tries of South America: Colombia, reduce the drug supply have failed Peru and Bolivia. With these and that it should turn its focus to nations’ full cooperation, which has reducing demand through educa¬ been slowly forthcoming over the tion and treatment programs. last decade, it would conceivably Although overall drug use has be possible to eradicate at least declined in the last few years, drug two-thirds of the worlds coca crop use among teenagers has more in just a few months using a rela¬ than doubled since 1992, accord¬ tively benign herbicide. ing to the Foundation for Drug Heroin, the second most wide¬ Education and Awareness. This ly used hard drug in die United seems to strengthen tire need for a States, also originates abroad, but change in direction. But the argu¬ its cultivation and eradication are ment over attacking supply or USING DIPLOMATIC TOOLS: more difficult to control. Poppies, demand, which is as old as die drug CERTIFYING, SEIZING, which provide the opium gum from problem itself, is a blind alley. PUSHING ERADICATION which heroin is produced, grow in Economics and experience indicate nearly every temperate comer of the that, to some degree, demand will BY HARRY W. SHLAUDEMAN globe, but are harvested predomi¬ always stimulate supply. However, AND W. KENNE TH THOMPSON nantly in countries such as it’s doubtful any notable reduction in Afghanistan, Burma and Iran, where the demand for drugs can be sus¬ die United States has little influ-

20 FOREIGN SERVICE JOURNAL/OCTOBER 1996 Focus

The goal of U. S. drug policy has always been to curtail, if not eliminate, the flow of drugs into the United States, an idea simple in concept but difficult in execution.

ence. Opium is also much easier to cultivate than coca mines, the latter also known as speed, were an active leaf. Where the perennial coca bush takes two years or part of the drug scene in the 1960s and '70s. And now, more to become fully productive, opium poppies are a new generation of young users skeptical of warnings an annual crop, and in some cases are harvested three of addiction has not only rediscovered LSD but is times a year. Consequently, eradication can be of only flocking to methamphetamine, speeds more exhilarat¬ temporary benefit. One years losses may be offset ing cousin. Methamphetamines and related drugs, with a bigger and better-concealed crop the next year. particularly MDMA, known as “ecstasy” on the Cocaine and heroin, the two hard drugs of fashion streets, also are attracting a cult following among today, often sell for about the same sum on Americas young users and are destined to become the dominant streets, around $100 per gram each, although at that illegal drugs of the next decade. Arguments on behalf price, the cocaine would be much more pure than the of ecstasy’s benign qualities sound very much like the heroin. But, heroin brings much more money at the early praise for heroin, originally developed as a “non- wholesale level, with a kilo selling for $150,000 to addictive” substitute for morphine. $250,000, compared to $10,500 to $40,000 for one of The foreign drug trade has been quick to cash in on cocaine. Cocaine addicts, particularly those who the popularity of synthetics, which theoretically can be smoke crack, can kill themselves with five years or so controlled at every stage from lab manufacture to of heavy, regular use. Heroin, on the other hand, street sale. Trafficking rings in Mexico, where the nec¬ allows some addicts to develop sufficient tolerance to essary chemicals are widely available and inexpensive, survive for a decade or more, as long as a timely “fix” dominate the methamphetamine trade today; drug is available. The prospect of a longer-term clientele syndicates merely use the established distribution sys¬ makes heroin a more attractive commodity than tems in the major cities of Americas Southwest. cocaine for drug-trafficking organizations. A new challenge facing U.S. authorities is the The goal of U.S. drug policy has always been to rapidly growing abuse of synthetic drugs, which can be curtail, if not eliminate, the flow of drugs into manufactured in a laboratory without relying on a the United States, an idea simple in concept crop. Synthetics themselves are hardly a new phe¬ but difficult in execution. In most cases, particularly nomenon; many were developed and used between with marijuana, cocaine and heroin, illegal drug traffic World War I and World War II. LSD and ampheta- involves a five-link chain from the grower to the user. At one end is the farmer cultivating the crop; at the Harrij W. Shlaudeman is a retired FSO who served other is the street-level retailer. In between are refin¬ as ambassador to Nicaragua, Brazil, Argentina, Peru ers (processing), shippers (transit) and wholesalers. and Venezuela. From 1984-86 he was a special envoy The object is to break that chain — but where? In to Central America; from 1976-77 he was assistant terms of effectiveness and cost-to-benefit ratio, the secretary of State for Inter-American affairs. answer is clear: at the source, or as close to it as possi¬ ble. If governments can eradicate crops to prevent cul¬ W. Kenneth Thompson is a retired FSO who has tivation of the coca or poppies that are turned into served in Malta, Turkey, Benin, Spain and at State’s cocaine or heroin, the narcotics will never enter the Bureau of International Narcotics Matters. distribution system.

OCTOBER 1996/FOREIGN SERVICE JOURNAL 21 Focus

But eradication is a difficult policy choice for gov¬ government secure better control of airports and air ernments in developing countries. Depriving impover¬ space, forcing drug syndicates to reduce their multi-ton ished farmers of their livelihood — even if from raising flights to Mexico. But to the trafficking networks, these illegal crops — has created serious political problems in were temporary setbacks. nations such as Peru and Bolivia. Therefore, most gov¬ The drug trade is nothing if not adaptable, and its ernments compromise by focusing on interdiction with¬ networks’ operators are as resourceful, sophisticated, out totally rejecting eradication, even if interdiction is efficient — and as readily replaceable — as the leaders more costly and less effective. of any multinational corporation. When air and sea Within the U.S. governments drug control establish¬ interdiction shut down a good deal of the drug traffic ment, there have long been differences between the through the Western Caribbean and the Bahamas in advocates of interdiction and those of eradication. 1993, the cocaine syndicates simply switched to flying Because drug control has been the traditional province multi-ton loads into Mexico for subsequent smuggling of law enforcement agencies, interdiction has usually across the border. After the Colombian government dis¬ had the edge. The Coast Guard, the U.S. Customs membered the murderous Medellin cartel with the Service, the U.S. Drug Enforcement Agency (DEA) manhunt and killing of Pablo Escobar in December and the U.S. military work closely with their foreign 1993, the Cali group of Gilberto Rodriguez Orejuela counterparts in source and transit countries, together and friends picked up the slack. The steady flow of mounting many extensive but expensive operations. cocaine into this country continued without so much as However, in the past few years, as interdiction efforts a hiccup. have had little impact on the flow of drugs, the eradica¬ tion approach has attracted greater interest in the U.S. Most statistics used by governments and inter¬ drug control establishment. national organizations to assess the drug One drawback to an overly heavy emphasis on inter¬ trade are approximations at best. With mod¬ diction is that activity can too easily be equated with ern imagery techniques, however, it’s possible to mea¬ achievement. Governments can collect impressive sta¬ sure accurately the size of most coca and poppy planti¬ tistics in arrests and quantity of drugs seized without, in ngs. But because of differences in plants and growing fact, reducing significantly the overall drug flow. On conditions, it’s not possible to calculate precisely the occasion the interdiction of supply lines has temporar¬ quantities of finished drugs these crops will produce. ily driven up the price of finished drugs, but the con¬ The impact of even a major seizure in an interdiction sensus among U.S. government experts is that interdic¬ operation, therefore, is questionable. Eradication, on tion has, at best, reduced the supply of heroin and the other hand, provides an immediate and measurable cocaine on U. S. streets at any one time by no more result. Furthermore, extensive testing and environmen¬ than 10 percent. tal evaluations indicate that aerial spraying of the herbi¬ The same experts, however, seldom speculate on cide glyphosate would eradicate both coca bushes and what would happen if there was no interdiction at all. opium poppies effectively, safely and inexpensively. Presumably, the traffickers would flood the country Since the coca plant takes 18-24 months to become fully with drugs, driving down the price and growing their productive, major eradication would unquestionably customer base as all high-volume businesses seek to do. deal a painful blow to the cocaine supply. And because Indeed, carefully targeted interdiction can have positive cocaine’s raw material comes from only Colombia, Peru short-term effects. Last year in the Upper Huallaga and Bolivia, theoretically it would be possible to drasti¬ Valley, Peru’s major coca-producing region, authorities cally reduce the supply for at least two years. used radar to shut down the “air bridge” by which traf¬ The problem, of course, has been persuading these fickers transported coca base to Colombian labs. As a three governments to undertake widespread eradica¬ short-term result, the price of coca leaf on the local tion. Although all three countries signed the 1988 U.N. market fell below the cost of production. U.S.-supplied Convention Against Illicit Traffic in Narcotic Drugs and radars and air force patrols also helped the Colombian Psychotropic Substances, which requires them to sup-

22 FOREIGN SERVICE JOURNAL/OCTOBER 1996 Focus

When discussing the nations drug policy it’s tune to turn away from a war analogy .... Americans require their wars to he short and decisive; the struggle against hard drugs will be neither.

press illegal drug crops, the internal pressures to resist multilateral development banks and international are enormous. For many thousands of farmers in this donors. Andean region, there is as yet no real alternative to Effective opium poppy eradication is more difficult. growing coca or opium poppies, since no other crop The United States’ greatest success has been in Mexico, brings comparable financial compensation. The link¬ where Mexican government spray planes cut poppy cul¬ ages between guerrilla insurgencies and the drug traffic tivation in half between 1988 and 1992, from 6,700 create additional difficulties for the governments of hectares to 3,310 hectares. Though the hectarage has Peru and Colombia. Corruption is also a factor. Many been increasing since 1992, presumably in response to profit, if only indirectly, from the drug trade: politicians, higher U.S. demand for Mexican heroin, continuing financial institutions, legitimate businesses and, not eradication campaigns have kept cultivation well below least, central banks. Environmental groups have also 1988 levels. At the end of 1995, 5,050 hectares were sometimes helped block eradication, even though gov¬ eradicated. ernments that have balked at the use of glyphosate rou¬ To a lesser degree, eradication programs have also tinely permit farmers to use stronger herbicides to clear shown results in Southeast Asia and Southwest Asia. their fields. When the U.S. government had an active program in Among the three producing Andean counties, only Burma in the mid-1980s, a few aircraft sprayed as much Colombia — which has replaced Mexico as the leading as 14,000 hectares of poppy in only a few weeks. Had Latin American source of heroin and is the world’s Burma’s political environment not changed so radically largest source of finished cocaine — has undertaken in 1988, which halted the U.S. eradication program, aerial spraying to eradicate significant quantities of coca much of the crop of the world’s largest opium producer and poppies. Bolivia and Peru, with their long tradition would have been destroyed. of ritual and recreational coca-leaf mastication, have a Poppy reduction efforts in Southwest Asia have been more complex challenge in convincing local farmers to more problematical. Most of the poppies grown in eliminate plantings. Bolivia manually eliminates some Afghanistan are found in regions where the government non-traditional coca leaf, which has kept the crop from has limited access. Pakistan’s opium is cultivated along expanding significantly. Peru’s Fujimori government the Afghan border in the Northwest Frontier Province eradicates seedbeds, but not mature coca plants; offi¬ (NWFP), where political instability hinders uniform cials argue that depriving campesinos of their livelihood enforcement of the government’s opium poppy ban. may swell the ranks of the terrorist group, Sendero Nonetheless, eradication has helped reduce opium Luminoso, which has long been active in the Upper poppy cultivation to 6,950 hectares in 1995, a 15-per¬ Huallaga Valley. cent drop from a peak of 8,220 hectares in 1990. Despite these difficulties, there is growing accep¬ tance of aerial spraying as both workable and safe. It is The harsh light of publicity has strengthened the not inconceivable that at some point these societies will U.S. government’s hand in pressing for anti-drug decide it is in their best political and economic interest cooperation abroad. Under drug-control legisla¬ to accept comprehensive eradication. However, much tion the Congress first passed in 1986 and has since depends on whether their governments can develop strengthened, the president reports annually to the alternative crops and sources of income with the help of Congress on the degree of cooperation each major

OCTOBER 1996/FOREIGN SERVICE JOURNAL 23 Focus

country involved in drug production or trafficking has countries with key roles in the heroin trade. On March furnished the United States in die anti-drug effort. The 1 Colombia became die first cocaine-producing country president must certify that the governments concerned in South America to suffer decertification. In the have fully cooperated or taken steps to meet the goals of months preceding that decision, Colombian officials and the 1988 United Nations Convention. The certification their agents lobbied vigorously against it. Since then die process has proved to be an effective means of public government and die private sector alike, with support diplomacy, forcing into the open disagreeable issues from other Latin American governments, have argued governments in source and transit countries were once strenuously that decertification was unjust, fearing the accustomed to treating in private diplomacy. president would penalize Colombian exports, as the leg¬ The president s failure to certify a given country pro¬ islation allows him to do. In the case of Colombia, decer¬ duces unpleasant publicity of the kind likely to embar¬ tification has obliged both the government and the pub¬ rass any government. Among other requirements, die lic to focus on an acute national problem. president must address the issue of corruption in source and transit countries, a problem that previously attract¬ Clearly, the United States is a long way from win¬ ed too little public attention. Pervasive corruption is the ning the war on drugs, in the sense diat this handmaiden of drug trafficking. And for those govern¬ unfortunate metaphor would force the defini¬ ments that care about their international reputations, tion of success. the certification process represents real pressure. But the record is not without accomplishments. The Presidents have regularly decertified Afghanistan, United States has been able to cast drug trafficking as Burma, Iran, Syria, and, most recently, Nigeria — all an international issue of considerable weight. Most

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major source and transit countries now acknowledge Commission of the Organization of American States responsibility for curbing supply. (OAS), created in 1986 and chaired by retired FSO In countries as disparate as Thailand, Pakistan, David Beall since last year, has drawn up model regula¬ Colombia and Mexico, drug mafia kingpins long consid¬ tions to help members combat money laundering and ered invincible have been jailed, killed or extradited; halt the diversion of precursor chemicals used in drug although they are usually quickly replaced, the shakeup processing. The U.N. Drug Control Program devotes serves to weaken the organizations. Governments in the resources to designing alternative development pro¬ northern and southern hemispheres have cooperated in grams for areas cultivating coca and opium poppy crops. international sting operations that have trapped dozens of The U.S. government finances training programs aimed money launderers. For example, in 1994 the banking arm at building indigenous law enforcement capacity to con¬ of the American Express Co. paid a $14 million penalty trol the international drug trade. after a four-year undercover U.S. operation found diat a Every year since 1986, the Pentagon has transferred Cayman Island account of the bank was being used to a variety of surplus equipment, such as boats, planes launder money for Mexico’s largest drug cartel. and other military hardware, to various Latin American Governments have also worked together to establish countries to help in their fight against narcotraffickers. specialized multilateral bodies to attack the drug trade. Last year, the United States, the European Union and The Group of Seven created the Financial Action Task Brazil signed bilateral agreements that control the Force in 1989 to block money laundering in the devel¬ export of drug processing chemicals by applying mea¬ oped world; some 26 financial center governments sures to end the transfer of precursor and essentia] around the world have signed on. The Drug Control chemicals to the source countries.

OCTOBER 1996/FOREIGN SERVICE JOURNAL 25

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drug programs cost more than $13 billion in federal and a half metric tons of cocaine. Single flights into funds and $33 billion in state and local funds. Mexico have carried more than that. And the 130 met¬ The Clinton administration came to office with the ric tons seized annually by U.S. forces have a street intention of increasing the emphasis on drug use pre¬ value as great as the government’s total anti-drug bud¬ vention through education and the treatment of addicts. get. Hard dings are far and away the worlds most lucra¬ But in practice there has been little change from previ¬ tive commodities and the drug trade will always have ous years. The Federal budget for demand reduction more money at its disposal than governments with their during the last three years accounts for only 36-37 per¬ myriad responsibilities can muster. cent of the total anti-drug budget, up only 2-3 percent But governments, with the support of their citizenry, from funding during the Bush administration. can prevail. To do so in the United States we need to In the last six years, the federal government has more answer some hard policy questions. If it’s true that than doubled its spending on drug control, reaching breaking the drug chain nearest its source is the most $13.3 billion in fiscal '95, with modest annual hikes in promising approach to limiting supply, should the U.S. years thereafter, but only a fraction of this money has government devote a larger share of resources to the gone to international operations. The entire U.S. gov¬ international effort? Has government at all levels given ernment international effort in fiscal '95, including mil¬ sufficient priority and paid sufficient attention to pre¬ itary and Coast Guard support, came to about $850 mil¬ vention and education? How cost-effective are the huge lion, or 6 percent of the $13.3 billion total anti-drug amounts spent on anti-drug domestic law enforcement? budget. With cocaine at an average street value of $100 These are among the critical questions the ongoing million per metric ton, that budget is equivalent to eight national debate on drugs should address. ■

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 27 Focus ON US DRUG POLICY

IN ASIA, BATTLING WARLORDS

ike an old friend, heroin is back. of raw opium, enough for two-drirds of the world’s heroin. The Partnership for a Drug-Free Between 1984-90, Soudreast Asia’s share of die New York L Americas recent media blitz to city heroin market jumped from 5 to 80 percent. demystify heroins hip image As heroin shippments surged into New York, the city’s among young adults was launched bulk price dropped from $100,(XX) per kilo to $60,(XX) of with a full-page ad in The New York Times showing a des¬ retail “deals.” Responding to this market opportunity, perate woman, identified as “Ashley, ex-art director,” say¬ some unknown genius on die street raised its purity, diere- ing, “I saw a dog and thought: If I was a dog I wouldn’t by creating a whole new clientele for diis purer, cheaper have a heroin habit. I wish I was a dog.” Beyond the drug. The average heroin content sold on the street rose mainstream, insider journals are reporting heroins deep from 3 percent in 1990 to about 30 percent in 1994, hit¬ inroads into the industries that manufacture youth cul¬ ting 90 percent in markets like Philadelphia. There was an ture. Rolling Stone also wiped the added incentive for new customers: makeup off rocks worst-kept secret This new, pure heroin could be by listing dozens of mega-stars with snorted or smoked, cutting the link major habits. Allure reported that between intravenous injection and the fashion industry’s “baffling con¬ HIV infection. This “safe” heroin cept of heroin chic” is a reality snap¬ soon became the drag of choice for shot, since top models are regular the hip-hop nihilists of Generation users. After 20 years away, heroin has X. Actor River Phoenix and rock star returned with a vengeance, but why? Kurt Cobain, die celebrity overdoses The answer to this riddle lies in of die early 1990s, died from heroin. the shifting patterns of the global Layne Staley of die rock group Alice drug trade. In 1990, Southeast Asia in Chains sings die song, achieved the dual distinction of “Junkhead,” which asks, ‘“What in becoming the world’s largest produc¬ Gods name have you done?’ He er of raw opium and the major answers, ‘Stick your arm for some source of Americas heroin supply. real fun.’” We now see that this event, unno¬ As heroin supplies surged, an ticed at the time, was the first sign of AT COLD WAR’S END, obscure Bunnese drag lord named the forces driving todays heroin epi¬ Khun Sa, branded the “King of COMPLEX GEOPOLITICS demic. According to a State Heroin,” was charged with smuggling Department 1989 report on drags, tire SPURS HEROIN SUPPLY more than a ton of white powder into “Golden Triangle” region of Southeast America. Khun Sa was doing what U.S. BY ALFRED MCCOY Asia — where Bunna, Thailand, and drag experts had long feared — con¬ Laos converge — harvested 3,000 tons necting the Golden Triangles endless

28 FOREIGN SERVICE J O U RN A L/O C T O B ER 1996 Focus

Production is soaring in Southeast and Central Asia. If the warlords and their rebel states survive, Asms opium harvest may rise to levels that defeat a solution to the drug problem.

opium supply with New York’s limitless appetites. On the Heroin’s character as a commodity goes a long way to walkways and in the clubs, nobody knew his name; but it explaining the failure of Americas war on drags. was Khun Sa who made New Yorks heroin chic happen. After three U.S. drag wars under presidents Richard In retrospect, even more disturbing is tire realisation Nixon, Ronald Reagan and George Bush, global opium that Khun Sa was a pioneer, the prototype of a new kind production rose from 1,000 tons in 1970 to more than of regional warlord now emerging from tire ruins of the 4,000 tons in 1990, due, in part, to suppression itself . Like Cold War. With the collapse of the Iron Curtain, there all crops, opium obeys die laws of supply and demand. If has been an eruption of ethnic insurgency along southern an operation by the United Nations or the U.S. Drag frontiers of the former Soviet Union. As empires fall and Enforcement Agency (DEA) reduces supply in one area, new states fragment across this vast swath of tire globe, say Turkey or Thailand, and global heroin demand stays regional rebels anned with drug money and revolution¬ constant, then the world opium price must rise. ary fervor have begun producing illicit opium beyond the Responding to rising prices, farmers elsewhere, in control of any power. Burma or Afghanistan, will plant more poppy, and, over If these warlords and their rebel states survive, Asia’s time, total world supply will increase. opium harvest may rise to levels that will defeat any solu¬ tion to the world’s drag problem. In 1995, according to Opium’s modem history as a commodity began in U.N. field workers, opium output in Afghanistan alone the late 18th century when European empires jumped from 900 to 3,200 tons, raising tire world’s heroin transformed it from a luxury item into a mass supply by 50 percent. Driven by endless supplies of cheap, consumer good. In 1773, the British East India Co. pure heroin, drag use is rising in Europe and die United imposed a monopoly on the cultivation of Indian opium, States. Low-grade heroin is spreading rapidly into new promoting exports to China that rose from 75 tons in markets like China, Russia and India. Heroin seems set to 1776 to 3,200 in 1850. So important was tliis trade that become the worlds chug of choice for die 21st century. Britain fought two wars along the China coast, forcing the How can the surge of Asian heroin over die past five Middle Kingdom to rescind its ban on opium smoking years be explained? The answer lies in heroin’s little and open itself to unrestricted imports. understood character as a commodity. After defeat in the Second Opium War of 1858, China Over die past 200 years, opium, and its derivative was forced to legalize the drag, soon becoming the world’s heroin, have emerged as major global commodities, witii largest producer. At its peak in 1906, China harvested production systems and a political economy similar in 35,000 tons of opium to supply 13.5 million opium smok¬ scale to other major stimulants such as coffee and tea. ers, or 27 percent of all adult males in the country — a Their production is essential to Third World survival, and level of mass addiction never equaled by any other nation. their consumption is integral to First World lifestyles. By the early 20th century, opium had become a major ele¬ ment of Asia’s political economy. The once-remote Asian Alfred McCoy, a professor of Southeast Asian history “opium zone” that stretched for over 5,000 miles from and director of the center for Southeast Asian Studies Turkey to China was now fully integrated into world trade. at the University of Wisconsin — Madison, is the Straddling the major trade routes between India and author of The Politics of Heroin: CIA Complicity in China, the colonial governments of Southeast Asia were the Global Drug Trade, published in 1991. drawn into the expanding Asia opium trade by organizing

OCTOBER 1996/FOREIGN SERVICE JOURNAL 29 Focus

opium monoplies in the 19th century. By 1930, for exam¬ tons in 1940, Soudieast Asia’s opium harvest rose to 300 ple, Southeast Asia had 6,441 licensed dens serving 272 tons in die early 1960s and over 700 tons a decade later. tons of opium to 542,100 registered smokers. Cold War politics played a catalytic role in these Although a major opium consumer in the colonial age, changes, as die Iron Curtain had descended along the Southeast Asia remained a minor opium producer. In Asian opium zone. From Turkey to Thailand, this 5,000- 1940, Soudieast Asia still harvested only 15 tons of opium mile mountain run became a strategic frontier of anti-com¬ in a region that today produces more dran 3,000 tons. munist containment. Over the next 40 years, the CIA Since India supplied die government monopolies widi lim¬ mounted covert operations in diese remote, rugged moun¬ itless, low-cost opium, Soudieast Asian governments had tains by recruiting tribal leaders as resistance fighters, no reason to encourage local cultivation. many of whom used their powerful American ally to become drug lords. The advent of die Cold War brought major changes Southeast Asia’s Golden Triangle opium region grew to Asia’s opium trade. Under communism, China after die collapse of Nationalist China in 1949, when one eradicated opium smoking, suddenly eliminating of its armies retreated into northern Burma. When the globes major producer and consumer. Responding to Communist Chinese troops intervened in the Korean War, international pressures, Soudieast Asia abolished legal President Harry S. Truman ordered die CIA to open a opium sales between 1950 and 1961, creating a sudden secret second front by arming some 14,000 Nationalist demand for illicit opiates. To meet diis demand, the irregulars for an invasion of southwestern China. After region’s harvest grew rapidly and the Golden Triangle soon penetrating no more dian 20 miles inside China, die became the worlds largest illicit producer. From only 15 Nationalists were driven back into Burma, where diey

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30 FOREIGN SERVICE J O U RN AU OCT O BE R 1996 FSOs Find 2nd Careers as Pols Governing Board President: F.A. "Tex" Harris State Vice President: Alphonse F. La Porta in the Foreign Service, he was responsible for USAID Vice President: Frank Miller By Sharna Marcus responding to the mental health needs of USIA Vice President: Jess L. Baily PCS Vice President: Tom Kelsey AFSA News Intern employees at American embassies in Africa FAS Vice President: William W. Westman south of the equator. Retiree Vice President: Edward M. Rowell Secretary: Aurelius Fernandez Ohere is life after the Foreign Service, McDermott says that his brief stint as an Treasurer: Thomas Boyatt and it is in politics, according to four FSO gave him a better understanding of how State Representatives: Greg Fukutomi, Clark Price, Valentino E. Martinez, Francis T. former FSOs who have left delivering foreign policy works, a valuable asset in Scanlan, Mary Tarnowka demarches and writing cables behind in favor Congress. "If you have never lived abroad USAID Representatives: Gregg Baker, James R. Washington of stumping for votes on the hustings. and have never seen what (other countries USIA Representative: Brooks Robinson U.S. Rep. Jim McDermott, (D-Wash.), who and cultures) are coping with, you don't Retiree Representatives: Garber Davidson, William Harrop, Dennis Kux is running for his sixth term, has not aban¬ know the importance of what the State FAS Representative: Robert H. Curtis doned codels, but now he's more likely to be Department does," he said. Still, by running FCS Representative: Keith Curtis Staff a member of one. McDermott, 59, from for Congress, McDermott returned to his first Executive Director: Susan Reardon Seattle, Wash., served in the Foreign Service love. Before joining the Foreign Service, he Business Department Controller: Kara Harmon Ebert as a regional medical officer in Zaire from served as a Washington state representative Accounting Assistant: Marguerite Madland 1987-88 before leaving to run for Congress. and senator from 1 970-87. He was lured Administrative Manager: Dianna Dunbrack Labor Management Trained as a psychiatrist, McDermott joined back to Seattle from Zaire to run for General Counsel: Sharon Papp the Foreign Service after reading a story in Congress in 1988 because he wanted to Staff Attorney: Colleen Fallon Coordinators: Richard C. Scissors, Jack the American Psychiatric Journal about work work on health care in Congress. "There is a Bryant psychiatrist Paul Eggertsen was doing with real need in a democracy to have health USIA Labor Relations Specialist: Carol Lutz Grievance Attorneys: Audrey F. Chynn, the American embassy hostages after they care for everyone," said McDermott. "As Henry Sizer returned to the United States after spending much as I hated to leave the Foreign Service, Representative: Michael Triplett Law Clerk: Karen Carrington 444 days as captives in Iran. During a year this opportunity was impossible to pass up." Office Manager: Chris Coleman Member Services Continued on page 4 Director: Janet Hedrick Representative: Yolanda Odunsi Retiree Liaison: Ward Thompson Administrative Assistant: Linda Dinkel Professional Programs • AFSA Dateline • Professional Issues: Richard S. Thompson Congressional Affairs Director: Ken Nakamura Congressional Liaison: Rick Weiss • After 40 years , Arts America, the USIA • "Public Diplomacy," a two-part video Corporate Relations: Robert F. Krill Communications Coordinator: Leslie Lehman division which sends American artists over¬ series designed to educate Americans Scholarship Administrator: Lori Dec seas, will close October 1 due to budget about USIA's role in influencing public internet Addresses: cuts. USIA's Joint Partnership Council (JPC), opinion abroad, was recently released by [email protected] (Association) which includes AFSA, sent USIA the USIA Alumni Association (USIAAA). [email protected] (President) Administrator Joseph Duffey a letter protest¬ The video covers USIA's history and [email protected] (FSJ) ing because USIA's unions and manage¬ accomplishments, including segments on AFSA Headquarters: (202) 338-4045 ment were not consulted on the decision. the Voice of America, the Fulbright schol¬ FAX: (202) 338-6820 "The elimination of a major USIA func¬ ars program, educational and cultural Labor Management: (202)647-8160 tion...merited a deliberate, inclusive discus¬ exchanges and other USIA-sponsored pro¬ FAX: (202) 647-0265 sion that reflects the seriousness of such a grams in the United States and overseas. USIA Headquarters: (202)401-6405 pivotal choice," wrote the JPC. "Telling America's Story," part I, uses FAX: (202)401-6410 Continued on page 2

AFSA NEWS -OCTOBER 1996 1 DATELINE STATE DEPARTMENT AFSA Continued from page 1

interviews, photographs and archival V.P. VOICE footage to trace USIA's history. "The Road Ahead," part II, addresses USIA's role in the post-Cold War world. Former VOA director John Chancellor and commentator and After the Elections, What? presidential advisor David Gergen are featured in the series, which is Under Secretary for dation of agencies or functional inte available for $ 1 0 from USIAAA, Management Richard M. gration. The new Department leader¬ 3218 N. Kenmore Street, Arlington, Moose's resignation is regret¬ ship should not again miss the opportu¬ Va. 22207. Please add $2 postage table, from AFSA's point of view, nity to make sensible proposals in light for an overseas address. because he would have been State's of the grim budget situation. To pre¬ political liaison for the tran¬ pare for this, management • Prominent African affairs sition to a new administra¬ should tackle the following experts from government and busi¬ tion. Now, Moose's agen¬ "Will the right between now and January ness will be featured at AFSA's 22nd da of promising manage¬ 20: issues be business leaders symposium, "Trade ment initiatives is likely to -Decide the next stage of and Investment Opportunities in Sub- be set back. presented ICASS. A self-funding Saharan Africa," to be held in While AFSA has not administrative support to the Washington, D.C., November 14. hesitated to be critical of agency within State is one Franklin Sonn, ambassador to the the former under secre¬ transition answer. United States from the Republic of tary's management prac¬ -Develop the next stages of team?" South Africa, will be a featured tices, we were impressed the Post Staffing Models, speaker at the convocation ceremo¬ by his emphasis on imple¬ including an annual valida¬ ny. Keynote luncheon speaker will be menting the International tion and needs identification Rep. Jim McDermott (D-Wash.), spon¬ Cooperative Administrative Support system. sor of legislation to create a compre¬ System (ICASS), completing work on -Propose a system for the review of hensive trade and investment strategy Overseas Staffing Models, develop¬ domestic functions and staffing. (Are between the United States and Sub- ing work force planning, pressing for¬ organizations and people doing what Saharan Africa. Panelists include: ward with badly needed reform of they are supposed to?) George E. Moose, assistant secretary the logistics system, and making -Link the foreign affairs budget of State for African Affairs; Alan P. belated decisions on Information (the 150 Account), mission and Larson, assistant Secretary of State Systems Modernization. Since early bureau program planning for Economic and Business Affairs; this year, Moose had wisely nar¬ (MPP/BPP), annual budget formula¬ Lauri J. Fitz-Pegado, assistant secre¬ rowed his interests to these bench¬ tion and financial allocations. tary of Commerce and director gener¬ mark projects. -Review the list of inadequately fund¬ al of the Foreign Commercial Service. Unhappily, a weakened ed past reform initiatives, including The conference will conclude with a Department will face the transition delayering, pruning of bureau hierar¬ reception in the Benjamin Franklin with career Foreign Service and Civil chies (especially in management), Diplomatic Reception Room. Service officers being tested as they reducing redundancy and consolidat¬ Registration for corporations guide management bureaus through ing management and functional bureau the post-election period to new political executive offices into service bureaus. Continued on page 3 leadership. Former Secretary of State Lawrence But, to use the favorite words of a Eagleburger and Ambassador Robert senior State financial manager, will Barry, writing in the spring issue of there be enough on the plate? Will the Foreign Affairs, proposed internal right issues be presented to the transi¬ reform and the creation of "super" Give to AFSA tion team? Even if Clinton is re-elected, regional bureaus prior to the consolida¬ Scholarships with CFC a small transition team will make per¬ tion of other foreign affairs agencies. sonnel decisions, formulate broad man¬ Their proposals should not be ignored. Designate AFSA's Scholarship Fund agement policy guidance and prepare In the short time remaining before during the Combined Federal arguments for increasing State's budget new leadership takes over, State man¬ Campaign by choosing agency requests for fiscal year 1998. agement cannot give in to bureaucratic code 2422 under "Educate Congressional leaders will expect inertia. Otherwise, decisions will be America!" the Administration and the Department made in spite of the Department, not to propose a reorganization of foreign with the cooperation, creativity and affairs agencies, whether it be consoli¬ expertise of the Foreign Service.

2 AFSA NEWS -OCTOBER 1996 AFSA DATELINE Continued from page 2

before Nov. 1 is $225, for NGOs, $125. After Nov. 1, registration is V.P. VOICE $250 for corporations, for NGOs, $ 1 50. AFSA members may attend • BY JESS L. BAILY • free of charge, however, cost for the lunch is $60 and for the reception is $25. Please register in advance by USIA's Future: Dwindling Benefits? contacting AFSA at (202) 338-4045 or 1 (800) 704-2372 or by fax at Recently, an AFSA mem¬ long-term language trainees, transfer¬ (202) 338-6820. Payment may be ber reported that his post differen¬ ring JOTs to Washington instead of made by credit card or check. tial had been reduced putting them on TDY per from 20% to 10%. When a diem and instituting a new • The AFSA Committee on post differential is reduced it "Our benefits language incentive policy. Education has awarded more than should mean that living con¬ There is some justification $107,000 in financial aid grants to ditions have improved and and for each change. Living 54 Foreign Service children for the the security threat has been allowances are conditions can improve 1 996-97 academic year. First install¬ lowered. But are these the and per diem for long-term ments will be paid directly to scholar¬ real reasons for the change? inviting language training is now ship recipients' schools in Sept., with Or, as some suspect, are targets for consistent with the State the remainder to follow in Jan. reduced budgets forcing Department practice. management to find savings budget cutters." Many USIA officers felt that by cutting Foreign Service the old system of language benefits and allowances? If incentives rewarded offi¬ so, when does AFSA stand cers for acquiring lan¬ up and say enough? guages rather than using and improv¬ We accept constant moving, difficult ing skills on the job. And then... living conditions, isolation and security What should AFSA do about dwin¬ The prime minister's wife threats when we join the Foreign dling benefits? Remember: It's expen¬ Service. The government accepts that sive to maintain officers overseas and whispered to the American to attract and maintain a professional attempts to preserve all benefits may ambassador... Foreign Service corps if must provide cost jobs in the long run. Here's my decent salaries and added benefits - approach: housing, education, COLAs, hardship First, AFSA must remind managers, The Journal is seeking embassy differentials, R&R, and, yes, danger pay. the public and the Congress that water¬ or diplomatic jokes for an issue on Few question the benefits military offi¬ ing down benefits will result in second- the role of humor and wit in diploma¬ cers receive, but benefits provided to rate diplomacy as morale plummets, cy. The editors are seeking new Foreign Service officers enjoy less popu¬ officers resign and recruiting suffers. jokes, old jokes and reused jokes - lar support. Some people think our ben¬ Second, AFSA should listen to pro¬ the kind that requires only the jokester efits allow us to lead lavish lifestyles posals for revising benefits. Post differen¬ to drop in another country's name to overseas complete with daily cocktail tials and COLAs are not entitlements for 1 revamp it for local use. Contributors parties in marble palaces. Clearly eternity. We must not be afraid to names are welcome, but not AFSA must erase such caricatures from admit when change - whether that required. the public mind. means increasing or decreasing Fax your favorite joke to: Editors Our benefits and allowances are COLAs - is needed. at FSJ at (202) 338-8244, or e-mail inviting targets for budget cutters, espe¬ Third, AFSA must be consulted it to [email protected]. cially when compared with RIFs and early on, before changes are made elimination of entire programs. No or rumors circulate. Often the way a DEADLINE: Nov. 15 one in management has suggested change in policy is communicated or abolishing any particular benefit or implemented sows more confusion allowance. Instead, new interpreta¬ and distrust among employees than Did you hear... tions of regulations or legislation result the change itself. For example, it is the one about the DCM in reduced benefits to employees. For unfair to promise benefits for an example, post differentials across assignment only to cut those benefits and the geisha girl agencies have been declining world¬ mid-tour. who got stuck in wide, most dramatically in 1 994, and Finally, a personal note. I try to the sand storm? housing space allowances are shrink¬ remember that I joined the service to ing as rents rise. Recent examples at live overseas, with all of the chal¬ USIA include changing per diem for lenges and rewards that entails.

AFSA NEWS 'OCTOBER 1996 3 POLITICIANS Foreign Affairs in the Elections Continued from page 1 Rhode Islander Robin Porter, 62, did¬ By Ken Nakamura n't have to leave the Foreign Service to Director, Congressional Relations start a political career. He simply wait¬ ed for retirement. An FSO from 1961- 83 who served in Haiti, the Philippines, ith the election of all 435 fee-klatches, meet-the-candidate W West Germany, Moscow and Kiev, members of the House of nights, anywhere candidates Porter had hoped to join McDermott in Representatives and 34 appear, remind them about foreign Congress, but he lost a Sept. 10 four¬ Senators to be decided this affairs. Even if you can only work in way primary for the Republican nomina¬ November, now is the time for AFSA a sentence or two as a lead-in to a tion from Rhode Island's 2nd District. members, their friends and support¬ question, you might make some of A self-described "moderate, problem¬ ers to demonstrate that there is a these points: solving Republican," Porter has served in constituency that cares about the - The post-Cold War world is dan¬ the Rhode Island state senate since 1992. U.S. role abroad. gerous and complicated. The U.S. He credits the Foreign Service with helping For too long the conventional wis¬ can best protect its interests and him prepare for the rough and tumble of dom on Capitol Hill has been that gain new ground if it is fully partici¬ politics. "I've matched wits with the pating in world events. no one really cares about foreign Russians," said Porter, who helped open affairs agencies or their funding. - In the past decade, non-defense the first American consulate in Kiev, This perception has had disastrous spending for foreign affairs budgets Ukraine. Porter's experience in the former consequences for our country's has been cut by about 49%, while Soviet Union also helped give him a cam¬ diplomatic readiness. defense spending has been reduced paign issue: environmental protection. When a responsible leader of only by about 20-30%. Non¬ "My Foreign Service experience made it one of our Congressional authoriza¬ defense spending for foreign affairs clear to me what needed to be done tion committees can say he never today accounts for about 1.2% of (about the environment)," he said. "My the national budget and is shrinking. gets constituent letters on foreign observation of the terrible environmental affairs if there is not a crisis, it These cuts are damaging diplomatic damage to the countryside in the Soviet means that he and others are influ¬ readiness and undercutting Union made the environment a priority for enced on how hard they may push a America's world-wide interests. me. Rhode Island is vulnerable because it foreign affairs issue, or go out on a - The United States faces econom¬ is surrounded by coastal waters, with an political limb on controversial policy ic problems at home, but it must not economy heavily weighted on tourism, so questions. When the chairman of abandon the protection and promo¬ we must protect our environment." one of our important appropriations tion of our national interests abroad While Porter will not be joining subcommittees can say that when he for that is a federal responsibility McDermott in Congress, he has been that cannot be delegated. Congress is home, he is never asked about mentor to retired FSO and former USAID must responsibly address both our funding for foreign affairs programs AFSA Vice President John A. Patterson, interests at home and overseas. and what that means for U.S. diplo¬ 60, another Rhode Islander, who won - The major international prob¬ macy, it means that he and others the Republican primary in September to lems confronting the United States are then free to think that their con¬ vie for Porter's vacant Rhode Island state stituents are more concerned about are more easily solved by diploma¬ senate seat. A first-time contender for other issues and are willing to see cy than by the use of costlier and public office, Patterson says he honed his riskier military actions or covert money cut from foreign affairs to go political skills in AFSA. "As an AFSA to other concerns. And when influ¬ operations. Forceful diplomacy vice president I learned negotiation skills ential elected representatives, such forms a more effective front line to and how to represent a constituency. as Sen. Jesse Helms (R-N.C.), the address the new threats to our That is directly relevant to being a decent Chairman of the Senate Foreign national interests. Congress should candidate," said Patterson, whose AFSA Relations Committee, can worry consider the funding balance among term was 1993-94. about the budget deficit and com¬ diplomacy, the military and covert As an FSO with USAID from 1966-94, pare our foreign assistance program intelligence in light of the new reali¬ Patterson served in the Philippines, Egypt, to taxpayers money going down a ties. Zambia and Rwanda. He says his experi¬ rathole, it means there is an inaccu¬ Experience with the 1 04th ence with economic development "is a rate perception about foreign assis¬ Congress has taught AFSA that legis¬ good fit right now for Rhode Island, where tance. lators need to be reminded by their jobs and development top the list of During the election season, take constituents that they will be held issues." After retirement, Patterson put his accountable for their foreign affairs advantage of opportunities to press development experience to work by serv¬ candidates on their stands on for¬ votes. This message is best delivered ing on the board of Quonset eign affairs and funding of foreign to politicians while they are cam¬ Point/Davisville, a former naval base affairs agencies. At campaign cof- paigning in their home districts. being converted into an industrial park.

4 AFSA NEWS • OCTOBER 1996 POLITICIANS Continued from page 4 From there, all it took was a nudge from Porter to push him into the political fray. V.P. VOICE While Patterson is running for a seat in •BY WILLIAM WESTMAN* the state senate in Rhode Island, retired FSO Jay Kenneth Katzen, 60, is trying to move from Virginia's general assembly to its statehouse as lieutenant governor. A Telling the Public About FAS Republican from Warrenton, Va., Katzen, a two-term delegate, retired from the he memory of the public is agricultural trade and runs a referral Foreign Service in 1 985 after serving in short," wrote well-known mys¬ service that can link U.S. companies Brazzaville, Bamako, Bucharest, Kinshasa, tery novelist Agatha Christie in with business partners overseas. We Bujumbura and Sydney. He says he her book, Lord Edgware Dies. I pro¬ need to let people know that as part sought a career in state politics because, pose that we paste this of its routine business the "state politics is really where the action is." aphorism on the doors of FAS might clear a load of He supports an amendment to the Virginia all foreign affairs agencies "We must U.S. livestock or get a constitution that would allow FSOs, many as a reminder that we must health certificate for 15 of whom are property owners and pay constantly tell the public constantly cases of frozen french fries taxes in Northern Virginia, to vote in about the significant work tell the public for a trade show that Virginia elections even if they are posted we do. At a time when for¬ begins tomorrow or make abroad. "I've lived in an awful lot of coun¬ eign affairs budgets are about the a crucial link that can mean tries, and not all elections are democratic. being gutted on Capitol significant work millions for U.S. businesses, We have to fight for those rights and Hill, we must market our¬ and that this is a vital part defend them daily," said Katzen. selves and our services to we do." of what tax dollars provide. Does Katzen miss his 23 years over¬ survive. While FAS contin¬ seas? "The Foreign Service is a wonderful At FAS, that has meant ues its public awareness career, and I enjoyed all of it," he said. "I a new type of outreach, as we join program, we must also recognize that also feel that politics at the state level is with AFSA to help promote foreign we are struggling with internal frankly the most enjoyable experience I've affairs agencies struggling for their change. Each week our standing com¬ ever had. I just love what I am doing piece of the contracting budget pie. mittee meets with USDA management now." Last July for the first time FAS officers and AFSCME, the union that repre¬ That's good news for FSOs contemplat¬ took two days of home leave and sents Civil Service employees, in the ing life as politicians after retirement. vacation to meet with the press, farm FAS Partnership Council. Historically organizations, university audiences there have been significant divisions and agricultural companies in 43 between Foreign and Civil Service states. Our volunteers fanned out employees at FAS, and the across the country to bring this mes¬ Partnership Council has struggled to Delegate Jay Kenneth Katzen sage: Agricultural exports, which can openly discuss and discard some of P. O. Box 3302 multiply farm income, increase this baggage so that we can work on Warrenton, Va. 201 88 American jobs and create a positive a personnel system that provides 540-341-1997 balance of trade, are the business of more opportunities for all of us. After FAS. We provide an on-the-ground many hours of discussion, we have Rep. Jim McDermott link to overseas markets, an insider's some successes to report. In 1 996 1 809 Seventh Avenue, Suite 1212 knowledge of how to avoid the pit- we agreed on an assignment system Seattle, Wash. 98101 falls of agricultural trade and over¬ that opens up competition for over¬ 206-553-7170 seas connections for American com¬ seas slots to both services. We panies. With agricultural exports ris¬ believe that this greater mobility John A. Patterson ing, these services are particularly between the Foreign and Civil 721 North Quindnessett Road important. And now is our opportunity Services and the opportunity it offers North Kingstown, Rl 02852 to let the public know what FAS pro¬ for cross-training will be good for all 401-885-7776 vides. of us. Still, some prejudices and prob¬ This may not be news to AFSA lems die hard, particularly with bud¬ State Senator Robin Porter members, but it was to the thousands get cuts affecting people's livelihoods. 99 Main Street of business people, farmers, and Now is the time to resolve these issues North Kingstown, Rl 02852 media we talked with in just two days. so that we can concentrate less on 401-295-3677 They did not know that FAS provides who is steering the ship and more on market research reports on foreign plugging the holes in its hull.

AFSA NEWS • OCTOBER 1996 5 AFSA, FCS Adopt CB Agreement

By Tom Kelsey Foreign Commercial Service Vice President

cies has been signed to provide a fter difficult year-long negoti¬ structure for Foreign Service profes¬ ations,o AFSA was preparing to sign sionals in the Commercial Service to its first collective bargaining agree¬ participate in the tough decisions ment with the Foreign Commercial that lie ahead," said AFSA President Service(FCS) as AFSA News went to F. A. "Tex" Harris. press. The agreement, which ran into The agreement stipulates that several roadblocks, including per¬ elected AFSA representatives will be sonnel changes and the government¬ allowed "reasonable" time to conduct Diplomacy wide furlough, for the first time gives union business during work hours. a union voice to the more than 200 Other AFSA vice presidents and rep¬ Foreign Service employees of FCS. resentatives have similar agreements Has Its More important, the agreement sets with their employers; the amount of the ground rules for AFSA's relation¬ time they receive to conduct union Rewards. ship with management and gives business varies depending on the size both labor and management an of their constituencies. In addition, effective mechanism for resolving FCS and AFSA agreed that union rep¬ At American Service issues between them. AFSA is resentatives will not be retaliated already the collective bargaining against for their union activities, that Center, your Al, A2, agent for State, USAID, USIA and members have the right to have a FAS. union representative present if they NATO 1, NATO 2, or G4 "AFSA is extremely pleased that might be facing disciplinary action visa, along with a diplomatic the last bargaining agreement and that AFSA can use government e- among the five foreign affairs agen¬ mail to conduct union business. or official passport, allow

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remained for the next decade, occupying the Shan State. percent of Americas demand, Nixon pressed these allies for By the time the Burmese Army finally forced them into action. By 1973-74, Turkey had eradicated all opium pro¬ Thailand in 1961, opium production in the Shan State had duction and France closed its heroin labs in Marseilles. risen from 15 tons in 1940 to more than 300 tons. Ironically, Nixons triumph rested on the premise that Only eight years later, at the height of the Vietnam War, Turkey, which produced just 7 percent of the worlds illicit the Nationalists and local warlords opened seven laborato¬ supply, was an isolated opium producer that could be elim¬ ries in the Golden Triangle to supply U.S. soldiers fighting inated through a strong enforcement effort. Responding to in South Vietnam. By 1971, limitless supplies of heroin, the market stimulus of Turkish eradication, the Chinese sold in identical plastic vials, were available at every club criminal syndicates of Southeast Asia began exporting sur¬ and firebase from the Mekong Delta to the DMZ. plus heroin to America, in effect following the GIs home. According to a later White House survey, 34 percent of By early 1975, Southeast Asia’s share of the U.S. heroin U.S. troops in Vietnam were addicted. If diis figure is accu¬ market had doubled to 22 percent. rate, there were 80,000 heroin-addicted U.S. soldiers in Concerned about rising Southeast Asian heroin South Vietnam, far more than the 68,000 in America. seizures, the Nixon administration dispatched a team of 30 DEA agents to Bangkok from 1973-74 to cut the flow. As American troops withdrew from Vietnam in 1972, Armed widi a $12 million anti-drug war chest, the DEA President Nixon inadvertently created a new market began making substantial seizures of U.S.-bound heroin — for Golden Triangle heroin by declaring a “war- on erecting a de facto customs shield against chug exports to drugs” in tire Mediterranean. Acting on reports that Turkeys America. By the end of 1975, Southeast Asia’s share of tire poppy fields and Marseilles’ heroin laboratories supplied 80 U.S. market had dropped to only 8 percent. But the DEA

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had not eradicated opium cultivation in Burma or closed During the 1980s, moreover, presidents Reagan and heroin refineries in Thailand. It had simply deflected these Bush declared a renewed war on drugs, mobilizing the exports to other markets in Europe and Australia, thereby DEA, the CIA arid the Defense Department in an $11 bil¬ expanding world demand. lion battle against drug dealers at home and drug lords Blocked from the United States, Southeast Asian syndi¬ abroad. Under their tough drug laws with mandatory min¬ cates began exporting to Europe and Australia. Total imum sentences, the U.S. prison population soared from European seizures of Southeast Asian “No. 3 heroin” 100 per 100,000 in 1980, where it had remained for die jumped from 22 pounds in 1972 to 873 pounds in 1978. In past 50 years, to 440 per 100,000 by 1990. President West Germany, deaths from heroin overdose increased Clinton continued die war when he came into office in from 9 in 1969 to 623 a decade later. 1993; indeed, die drug war remains one of the few Cold Although Nixons drug war thus stimulated the global War survivors to command bipartisan support. market, in the late 1970s eveiy indicator pointed to a drop in the U.S. heroin supply. Purity of street deals in New The ending of the Cold War has left some ambi- York City declined, reaching an historic low of 3 percent. gious legacies on both sides of the Iron Curtain Why? Perhaps Nixons drug war may have cut die flow of tiiat contributed to this surge in global drug sup¬ dings into the United States. Or, perhaps President ply. The collapse of die Soviet Union weakened key states Carters ban on major CIA covert operations from 1976-78 within Asia’s opium zone and destroyed die global tem¬ removed die protection diat ding lords needed. plate diat had shaped the worlds drug traffic for 40 years. Whatever the cause of this decline, the reason for its This was done by extending opium cultivation into Central later reversal seems clear. In die 1980s, Asian opium pro¬ Asia, creating criminal syndicates and opening new traf¬ duction tripled — from 1,450 tons in 1981 to 4,200 in 1989 ficking routes diat spread out from Russia in a cat’s cradle — fueling a global spread of heroin abuse. The most dra¬ of drug routes, many crossing through the Balkans. matic change came in soutiiwest Asia. In die 1970s, Similarly, drugs now exit the Golden Triangle by truck Afghanistan and Pakistan still produced only limited quan¬ directiy dirough China to Hong Kong — leaving behind a tities of opium for local markets and tiiere was no signifi¬ trail of drug gangs, rising heroin addiction and soaring HIV cant heroin production — a point made repeatedly in infection across Chinas soudiem provinces. cables to Washington from Richard Helms, then-U.S. The end of the Cold War also accelerated die spread of ambassador to Tehran and a former CIA director. By 1981, opium in Central Asia. To compensate for die loss of U.S. however, Pakistan suddenly became the source of 60 per¬ covert aid, Afghan guerrillas have increased dieir poppy cent of die U.S. heroin supply and die worlds largest hero¬ cultivation. Poppy cultivation and heroin refining are in producer. The real tragedy was in Pakistan itself. Widiin spreading from Afghanistan into neighboring states tiiat five years, it developed die worlds largest heroin-addicted were once part of die former Soviet Union. Over time, population, up from 5,000 in 1980 to 1.2 million in 1985. Central Asia may become a vast opium reservoir on die Why did Pakistan’s drug output increase so quickly? roof of die world, producing limitiess quantities of low-cost The answer lies in die geopolitics of die Cold War. After heroin for markets across the globe. the Soviet Union invaded Afghanistan in 1979, the White In the twilight of the Cold War, it seems unlikely that a House directed die CIA to support die Afghan resistance. drug policy tiiat relies on strong states as partners in repres¬ Working dirough Pakistan’s Inter-Service Intelligence, the sion can succeed. By the late 1980s, regional warlords in agency gave covert arms and finance to die Muslim guer¬ Central ai id Southeast Asia began to accumulate enough rilla forces. As they took control of liberated zones, Afghan power, from drugs and insurgency, to defy state authority. warlords like Gulbuddin Hekmatyar, now prime minister, increased opium production to finance their revolution. A s evidenced by die anger out of Washington, the Shipped into Pakistan, die opium was processed into hero¬ J % capture of drug lords like Burma’s Khun Sa is a top in by elements of the Pakistani military and Afghan resis¬ JL JLpriority for U.S. narcotics policy. Indeed, from tance forces. 1981 to die present, die ultimate aim of the drug war has

32 FOREIGN SERVICE ] O U RN A L/OCT O B E R 1996 Focus

From the earlij 1950s, the U.S. relationship to Southeast Asia was close, particularly with Thailand, and correctly cool with Burma. Every battle won in Thailand was lost in Burma.

been to break up the major cartels and imprison their lead¬ understand the rising power of warlords like Khun Sa. ers, whether Pablo Escobar or Khun Sa. Khun Sa’s career Moreover, if any anti-drag strategy is to be effective in demonstrates die utter futility of this exercise. While they areas like Southeast Asia, U.S. foreign policy will need to are still central to die narcotics trade, major drug lords develop a suppleness beyond the simple bi-polarity of the remain impervious to external pressures. They can only be Cold War. While Wasliington enjoys ample leverage with arrested when die political economy of die producing Bangkok, it had only tenuous ties to Burma, a country that regions shifts in ways that render them redundant. We can was becoming tire major source of U.S. heroin. only capture a ding lord when he is no longer a drug lord. From the early 1950s, tire U.S. position in Southeast This paradox raises some questions about die nature Asia was marked by a close alliance with Thailand and a of the global drug trade and the policy we have adopted correct coolness towards Burma. While America signed a to combat it. For the past 15 years, the ultimate logic of military aid agreement with Thailand in 1950, that same the drug war hits been supply reduction — eradication at year President Truman authorized the CIA to supply the source in Asia and the Andes, interdiction on the high 14,000 Nationalist Chinese troops in northern Burma. seas, and seizures from dealers on the streets. As the war¬ Within a year, the U.S. ambassador to Rangoon, David lords of Central and Southeast Asia produce ever larger MeKendree Keys, was filing off cables to Washington opium harvests, a rising tide of heroin may render any protesting the “flagrant disregard for Bunnese sovereign¬ attempt at a supply-side solution unworkable. ty” and, when ignored, resigned in protest. Rangoon won a Even if Khun Sa were to be arrested, die poppy fields U.N. condemnation for the action, but while Rangoon and addicts would remain; and some odier genius would continued to protest during the next decade, the United soon reap the profit diat comes from linking diese two. States built closer relations with Bangkok. The global drug traffic is, in fact, a vast commodities trade Every battle the United States won in Thailand was lost linking First World and Third World in a complex com¬ in Burma. During the 1980s, the steady eradication of illic¬ merce that interpenetrates eveiy aspect of the modem it drugs in Thailand drove the traffic across the border, world. Just as those “gnomes of Zurich” or “Wall Street fueling a dramatic 500 percent increase in Burma’s opium bankers” have little control over the price of gold or stocks, production, from 500 to 2,500 tons. so drag lords do not make die drug trade. The United As Burma’s share of the US heroin supply shot upward States has, in effect, declared war on a global commodity, from 15 to 80 percent by the early 1990s, Washington sud¬ and not even the surrender of the worlds preeminent denly found its weak relations with Rangoon a liability. entrepreneur can cause a flicker in this vast commerce. Since 1989, the White House has repeatedly denied In a few years Americans may look back on the 1980s Burma certification for anti-narcotics aid. Playing upon -— with its ruthless Shan drug lords, wealthy Colombian internal divisions inside Washington, in 1994 Burma’s mil¬ cartels and 5 million U.S. drug users — as the “good old itary junta offered the head of Khun Sa for U.S. militaiy aid days” when the situation was under control. Whatever and has since dangled die lure of renewed cooperation suppression policy is adopted, the global opium supply with die DEA to win a lifting of US sanctions. In die last will probably double every five or 10 years. two years, however, Rangoon’s repeated refusal to deliver Khun Sa has brought US-Burmese relations to an historic In the future, drag diplomacy will have to go beyond low. Under the dictates of the drug war, Washington has presidents and prime ministers. If U.S. policy is to sacrificed bilateral relations with Burma to pursue its man¬ adapt to a new geopolitical reality, then America must hunt for just one drug lord, Khun Sa. ■

OCTOBER 1996/FOREICN SERVICE JOURNAL 33 Focus ON US DRUG POLICY

IN LATIN AMERICA. QUELLING CHAOS

n the last quarter century, American tax¬ Colombian drug cartels into major U.S. wholesalers and payers have forked out $300 billion at retailers of cocaine, heroin, mediamphetamine and I federal, state and local levels to fight marijuana. More than 1 million people in the United drug trafficking in the United States and States, Colombia and Mexico earn their living today around the world; in the last decade, a from the illegal drug trade, including an estimated surge in drug-related convictions has pushed die feder¬ 600,000 wholesale and retail drag dealers in America. al and state prison population to more than 1 million Retired Gen. Barry McCaffrey, die national drug inmates; and precious civil liberties protected by the control policy director and former head of the U.S. First, Fourth, Fifth and Eighth amendments have been Armed Forces Southern Command (Southcom), lost. Moreover, a final victoiy in this interminable war is acknowledged before the Senate Judiciary Committee nowhere in sight, although the early winners appear to last month that the Clinton administration has been soft be the wealthy and powerful on drags, dismantling the White Colombian and Mexican drug car¬ House Office on National Drag tels, which have deeply entrenched Control Policy (ONDCP) in 1993, themselves in America. slashing its budget and laying off or More than 80 percent of the reassigning 75 percent of its per¬ cocaine and 62 percent of the hero¬ sonnel. Subsequently, in in smuggled into America last year November 1993 President Clinton originated in Colombia, according signed Presidential Decision to the U.S. Drug Enforcement Directive No. 14, which cut back Administration (DEA). In addition, funding for drag interdiction oper¬ nearly three-fourths of die cocaine ations by the U.S. Coast Guard in smuggled in last year was transport¬ the Caribbean region and U.S. ed across the U.S.-Mexico border Customs Service anti-drag opera¬ by Mexican drug traffickers who tions on die U.S.-Mexico border, have formed strategic associations and began attacking the drag sup¬ with Colombian cartels to jointly ply at its sources in Colombia, Peru supply the U.S. market with and Bolivia. cocaine and heroin. A 1993 FBI DESPITE CRACKEX)WNS, report identified more than 33 core CARTELS NOW STRONGER, A t die end of 1995, in a policy Colombian and Mexican criminal sishift compelled by domestic MORE INFLUENTIAL \ enterprises in three dozen U.S. 1%.political concerns and omi¬ states. In die process, Mexico’s drug nous developments in Colombia and BY JOHN SWEENEY cartels have evolved from cross-bor¬ Mexico, the Clinton administration der smuggling transporters for adopted a tougher line against drags.

34 FOREIGN SERVICE JOURNAL/OCTOBER 1996 Focus

More than 1 million people in the United States, Colombia and Mexico earn their living today from the illegal dmg trade, including an estimated 600,000 wholesale and retail dmg dealers in America.

At home, a president who admitted smoking marijuana enter die United States; the only other world leader sin¬ as a college student, but who def ied credibility by claim¬ gled out for similar treatment had been Kurt Waldheim, ing he never inhaled the smoke, came under intense the former U.N. secretaiy general and Austrian presi¬ political fire from Republican critics as increasingly dent charged with participating in the World War II greater numbers of American teenagers began using deportation of Jews to Nazi death camps. marijuana and heroin. It was also clear drat the admin¬ The Clinton administration has threatened istrations policy of attacking the drug supply at its Colombia with additional punishment, although trade source in Colombia, Peru and Bolivia had been a fail¬ sanctions may not be imposed until after U.S. elections, ure, while Mexico had emerged as a major, and increas¬ to avoid angering American voters in Florida whose ingly dangerous, player in the hemispheric narcotics jobs would be hurt if imports from Colombia are trade. blocked. President Clinton launched his crackdown on drugs As President Clinton toughened his anti-drug poli¬ last January with McCaffreys appointment as the new cies and campaign rhetoric, Republican presidential White House drug czar. The president also increased candidate Bob Dole responded by proposing even funding and personnel for the interdiction of illegal stronger measures. Within 90 days of taking office, immigrants and drugs attempting to cross the U.S.- Dole would increase funds for National Guard units Mexico border, prompting outraged complaints from fighting the drug trade and illegal immigration on the Mexican officials that the administration was racist, par¬ U.S.-Mexico border, build fences and other border ticularly anti-Mexican. On March 1, President Clinton obstacles more quickly, impose trade and other sanc¬ decertified Colombia for not doing enough to fight the tions against drug-producing countries, and implement drug trafficking, even though six of the seven top Cali a comprehensive plan for tightening border controls in cartel leaders had been captured or surrendered to the American Southwest. Colombian law' enforcement authorities in 1995. Although U.S. law prohibits the military from Instead, the administration said decertification was tied becoming involved in domestic law enforcement, Dole to the 1994 election campaign of Colombian President also indicated that he would consider militarizing the Ernesto Samper, which had been financed in part with war on drugs to halt the flow of illegal drugs from $6 million contributed by the Cali cartel. Mexico and Colombia. “If all these actions aren’t Colombia’s decertification placed it in the company enough to turn the tide in the war on drugs,” Dole said of pariah states such as Nigeria, Bunna and Afghanistan, during a speech at a National Guard convention last and cut off Colombian access to credits and technical month, “then I am prepared to take a long, hard look at assistance from U.S. and multilateral agencies such as giving the U.S. military lead responsibility for stopping OPIC, Export-Import Bank, MIGA, the Inter-American the flow of illegal drugs across our borders.” Development Bank and the World Bank. That was fol¬ How credible are the actions and statements of the lowed on July 11 by the cancellation of Samper’s visa to Democratic incumbent and Republican challenger? A former U.S. ambassador to Colombia who does not John Sweeney is a policy analyst on trade and Latin wish to be identified believes that the heated anti-drug American issues at The Heritage Foundation in rhetoric of the 1996 presidential elections will die down Washington, D.C. after Washington returns to business as usual in 1997.

OCTOBER 1996/FOREIC.N SERVICE JOURNAL 35 Focus

“Perhaps I am too cynical after a lifetime in Colombia, is to prevent U.S. trade sanctions on Washington,” this official said, “but I think that who¬ Colombia and to insure it is recertified next March 1. ever occupies the White House in 1997 will try to However, while these groups’ arguments are imbued improve U.S. relations with Colombia and Mexico, with small kernels ol truth —- trade sanctions usually and will downplay the drug issue as much as possible.” are counterproductive and the United States is really not doing enough to curb domestic demand for illegal U.S. companies and other special interest drugs — the reality is that Colombian and Mexican groups have mobilized in Washington to pre¬ governments have never had as much interest as the vent the imposition of trade sanctions against United States in fighting the war on drugs. Colombia. For example, Republican members of The historical record proves beyond any doubt that Florida’s congressional delegation have warned that Colombia and Mexico have only cooperated in anti¬ sanctions could disrupt fresh-cut flower exports from drug efforts in response to U.S. pressure. The eco¬ Colombia, putting more than 10,000 Miami-area nomic, political and social development needs of employees out of work. They were joined in August by Colombia and Mexico have always been more impor¬ a dozen major U.S. oil companies and construction tant than helping the Yanquis fight a war perceived by firms, liberal organizations such as the Inter- Latin Americans as a uniquely American problem. American Dialogue in Washington, and the North- And, the hard currency inflows and economic devel¬ South Institute in Miami. In addition, a U.S.- opment that Colombian and Mexican drug cartels Colombia business association has been created to have generated for their respective countries have promote improved bilateral relations, whose always been more important than aiding America’s Washington branch is headed by former U.S. ambas¬ battle against narcotrafficking. sador Michael Skol, who joined the Washington-based For example, Colombia’s total exports of cocaine public relations firm, Diplomatic Resolutions, Inc., and heroin generate between $3 billion and $4 billion after leaving the Foreign Service earlier this year. a year in hard currency earnings that return to At Washington meetings held by these groups, the Colombia in the form of merchandise and cash usual litany of criticisms are heard about supposedly imports. This sum is nearly equivalent to Colombia’s mistaken U.S. anti-drug policies and American total annual sum for non-traditional exports of cut responsibility for the drug-related problems of flowers, manufacturing and other goods. Moreover, Colombia, Mexico and other drug-producing coun¬ Colombian economists estimate that the drug trade tries. None are unique. For example, drugs are an adds between 1 and 2 percentage points each year to American problem because U.S. demand drives sup¬ the country’s GNP, which explains why the Colombian ply in Colombia and Mexico; the United States is not economy has enjoyed respectably high growth during doing enough to curb demand at home; the current the 1990s despite a sluggish performance by its export U.S.-Colombian conflict is blocking progress of a sectors. During the past decade Colombian drug traf¬ Free Trade Area of the Americas (FTAA) because fickers have purchased most of Colombia’s arable land other Latin American countries have sided with and in some cities have financed up to 40 percent of Colombia in this conflict; major U.S. investment and all residential and commercial construction. trading interests are at risk in Colombia because of In the case of Mexico, anti-drug experts estimate this conflict; and trade sanctions never work, and will that in 1995 Mexican drug cartels exported over $100 only weaken Colombia further. Some participants billion of cocaine, heroin, marijuana and metham- have argued that the Clinton administration’s decerti¬ phetamine to the United States, generating $30 bil¬ fication of Colombia is responsible for that country’s lion in profits. Mexican drug traffickers have laun¬ deepening political crisis. dered illegal profits in residential and commercial The common objective of these groups, some of construction, tourism projects, and transportation and which are funded either by companies with interests warehousing enterprises — particularly since NAFTA in Colombia or indirectly by the government of was implemented in 1994.

36 FOREIGN SERVICE JOURNAL/OCTOBER 1996 Focus

When the Cold War ended, U.S. hegemony in Americas Initiative, which outlined a strategy for a U.S.- the Western Hemisphere was enhanced Latin America partnership based on free trade. mainly by default. Although the United From its inception, however, the U.S. strategy of dis¬ States was the worlds only military superpower, U.S. eco¬ mantling trade barriers and opening up the hemisphere’s nomic dominance in the Americas happened more by- markets collided widi the unexpected emergence of drug accident than by design. The European Union (EU) was trafficking as a new threat to U.S. national security- and more interested in Russia and the former Soviet states stability- in the Americas. On one hand, tire end of the and Eastern Europe, while Japan focused more on its Cold War buried the threat of communist expansion, but internal problems and on the rapidly growing markets of highlighted the growing international security threat of China and other Asian economies. Mexican President transnational organized crime enterprises involved in Carlos Salinas de Gortari discovered this reality when he drugs and weapons trafficking as well as other illegal approached the EU in 1989 in an unsuccessful effort to activities. On the other hand, drug trafficking enterprises stir up European interest in a free-trade agreement with were among the very first “business activities” to take Mexico. Rebuffed by the Europeans, Salinas had no advantage of the elimination of tariff and non-tariff barri¬ choice but to approach the Bush administration, where ers to trade. In this respect, Colombian and Mexican his proposal to negotiate NAFTA was welcomed by a drag cartels were way ahead of legitimate business enter¬ receptive audience. Bush followed up with the Brady prises in their own countries. While Colombian and Plan, which restructured Mexico’s foreign debt and was Mexican companies engaged in legal trade were still later successfully extended to other indebted countries in learning how to negotiate the pitfalls of a global economy, the hemisphere, and the 1990 Enterprise for the drag traffickers whose business activities had long been THE GOW SCHOOL The Nation's Oldest College Preparatory School for Young Men with Dyslexia / Learning Differences

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 37 Focus

multinational in terms of markets and organization adapt¬ involve illegal immigrants from Mexico, Colombia and ed easily to a more open global trading environment. other Latin American countries. However, while liberals stumble over these issues like A poll by the Chicago Council on Foreign Relations mud wrestlers at a sports bar on Friday night, conserva¬ last year revealed that over 85 percent of the tives have turned the war on drugs and illegal immigra¬ American public want the federal government to tion into the equivalent of a moral crusade. William stop the flood of illegal drugs and illegal immigrants from Rennett, the fonner White House drug czar and educa¬ entering the United States. Clearly, curbing the drug tion secretary who believes that Americas survival rests trade and illegal immigration are not partisan issues. on the reaffirmation of American values, ethics and While Democrats and Republicans compare each others morals, asserts that the war on drugs is a life-and-death achievements and shortcomings on the two issues, an contest “about who we are as a nation and what we overwhelming majority of Americans, regardless of polit¬ believe.” In Bennetts view, widely shared by social con¬ ical ideology or ethnic origin, believe their communities servatives, the war on drugs is nothing less than a pri¬ are being overwhelmed by drug traffickers and illegal mordial battle between the forces of good and evil. immigrants. Moreover, U.S. law enforcement profession¬ But there is no question that America needs to als cite data that shows an increasingly clear link between rethink its strategy for fighting the inexorable rise of drug trafficking and illegal immigration. During a hearing transnational organized criminal enterprises that traffic in July before the Senate Foreign Relations Committee, in drags. U.S. strategy, particularly in reference to tire chief of police of the city of Charlotte, N.C., said Colombia and Mexico, clearly is not working. This is drug-related arrests in his jurisdiction increasingly true, to a large extent, because U.S. anti-drug policy is

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mired in a hypocritical double standard that has made the civil liberties guaranteed by the U.S. Constitution. Colombia the favorite whipping boy of Washington Building more jails at greater taxpayer expense is not drug warriors, while the drug-related corruption con¬ enough; neither is dismissing teenage drug abusers as suming Mexico today is ignored because such indiffer¬ intrinsically evil people, which evades the issue of why ence suits the interests of the U.S. Treasury and the America’s families, schools and communities have Wall Street, Boston banks and investment firms hold¬ failed in the 1990s to prevent a new' generation of ing much of that country’s $180 billion foreign debt. youngsters from embarking on a journey of self- Militarizing the drug war may appeal to Democratic destruction. and Republican politicians in search of easy solutions And second, if the United States expects other coun¬ for complex problems, but in practice it won’t lead tries to cooperate in developing effective international America to a final, decisive victory in the global fight solutions to contain the global growth of drug traffick¬ against drug traffickers. ing, Washington must take the lead in ridding its anti¬ Containing the cancerous spread of drug trafficking drug policies of the hypocrisy that singles out Colombia in the Americas requires two important changes in U.S. for decertification and other sanctions, while ignoring anti-drug policy. First, more must be done within the the insidious growth of Mexican drug cartels for the U.S. to reduce drug abuse of youth and to control the sake of the financial interests of Wall Street and corpo¬ criminal activities of drug dealers. In this respect, the rate America. The Colombians and Mexicans cannot be challenge is to develop effective policies that combine accused of avoiding their responsibilities in tire war on family and community education, with better law drugs when the standard for evasiveness and hypocrisy enforcement measures that will not continue to erode is being set by Washington. ■

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 39 Focus ON US DRUG POLICY

IN BOLIVIA, BUCKING TRADITION

rr he humid, fetid jungle of the drugs. The indigenous Aymara and Quechua, pre-Inca Chapare is the breadbasket of peoples, chewed coca leaf to combat altitude sickness, the global cocaine industry, fatigue and hunger, and revered it as a sacred symbol in home to some of the most social ceremonies and communal rites. Today, nearly 8 —potent and productive coca million people — mainly in Bolivia and Peru — chew leaf in the world. More than 75 percent of the coca in leaves daily. All Andean marketplaces hawk creams, tea, Bolivia — now the planets No. 2 producer — grows in chewing gum, love potions, cough syrup, liver and this regions perfect blend of climate and soil, annually prostate tonics, wine, headache and diarrhea remedies, producing 180 tons of cocaine whose quality is only and other items made from inata de coca. But despite its rivaled by that of the Upper Huallaga Valley of Peru. alleged curative powers, more tiian 90 percent of the Few regions of the world have benefitted more from coca leaf grown in Bolivia is destined for the illegal tire largess of U.S. taxpayers than the cocaine market. Chapare, once litde more than a vast This year, the Bolivian govern¬ swath of sparsely populated swamp ment has been a particularly duti¬ and jungle that today boasts as well- ful soldier in the U.S. war on drugs, developed a transportation and utili¬ winning two pats on the back in ty network as any in Bolivia. As South June alone, one for signing an Americas poorest nation, Bolivia also extradition treaty that applies to holds the dubious distinction as drug traffickers and a second for recipient of more total U.S. aid than winning full U.S. certification after any other country in the Soudiem eradicating 1,750 hectares of coca Hemisphere, accounting for $1 bil¬ and promising to destroy another lion-plus in food, economic, develop¬ 5,400 by Jan. 1. Last year, Bolivia ment, military and countemarcotics was decertified for its failure “to assistance over the last seven years, fully cooperate in anti-drug according to figures provided by U.S. efforts,” although penalties were Embassy La Paz. It’s no surprise that waived for “national security rea¬ development aid has risen propor¬ sons.” The U.S. anti-drug ultima¬ tionately with die worlds growing CROP SUBSTITUTION tum requires Bolivia to eradicate demand for cocaine, which in turn has all coca leaf plantations by 2001. SPARKS BITTERNESS intensified U.S. pressure to eliminate So when President Gonzalo die drug at its source. AMONG CAMPESINOS Sanchez de Lozada visited the heart But die coca leaf tradition in die of coca territory last April, U.S. offi¬ Andean region is 4,000 years older BY KAREN KREBSBACH cials viewed this historical first step as tiian the 24-year-old U.S. war on a sign of hope: No previous Bolivian

40 FOREIGN SERVICE ] OU RN AL! OCT OB ER 1996 Focus

The indigenous Aymara and Quechua, pre-Inca peoples, chewed coca leaf to combat altitude sickness, fa tigue an d hu nger, a nd revered it as a sacred symbol in ceremonies and communal rites.

head of state had dared venture into the wilds of the report released by die U.S. Agency for International coca country. “I hope this is die beginning of a new Development (USAID) showed the number of vision for the Chapare,” he said in a brief interview on hectares of coca in the Chapare increased from 49,597 die helicopter tarmac before being flown from a cele¬ to 54,293 from 1993-95. And although the number of bration that had drawn hundreds of campesinos. “We hectares destroyed has increased annually since 1993, are at a turning point in the drag war.” aerial photos in 1995 indicated 33,700 hectares of coca The Chapares pivotal role in diat war was deter¬ in the region — exactly the same number, diougli in dif¬ mined a mere 15 years ago, when falling world bn ferent areas, as in 1993. prices sparked the widespread closing of the country’s The compensation program also backfired. Since tin mines, sending a flood into the Chapare of unem¬ 1988, more than $50 million has been spent on com¬ ployed miners with dreams of farming. Though these pensating farmers $2,500 per hectare (a hectare equals migrants knew little about agriculture, one thing they 2.5 acres) to voluntarily eradicate their coca fields. “In would learn soon enough: the coca leaf grew easily here, one sense, it was wasted,” says U.S. Ambassador to and it was lucrative indeed. Between 1977-81, when Bolivia Curtis Kamman, who acknowledged farmers coca cultivation and coca base processing increased by exploited the program by demanding funds for replant¬ 75 percent, die Chapare became somewhat of a boom ed coca in fields where the crop had just been pulled. community. “Bolivians argue it prevented here what happened in Also intensified during this period were U.S. efforts Peru — a vast expansion of coca,” he said in an inter¬ to halt the flow of cocaine to its shores by focusing on view at U.S. Embassy La Paz. the source countries of Peru, Bolivia and Colombia, Interdiction effoi-ts also had limited success. which officials claim is the most cost-effective anti-drug According to figures provided by the Bolivian national method. In Bolivia, U.S. strategy focused on pressuring drug squad, FELCN, it destroyed more labs and die Bolivian government to eradicate illegal crops; pro¬ cocaine factories, arrested more drug traffickers and riding funds to pay farmers to eradicate or not plant producers and confiscated more cocaine and corre¬ coca in their fields; training the military to destroy sponding chemicals in 1995 than in any previous year. cocaine base and cocaine hydrochloride production “There’s been a big effort to catch the small wholesaler, centers; increasing interdiction efforts to prevent the person who buys up the cocaine base or, in some cocaine or coca leaf from leaving the country; and intro¬ cases, just buys up the leaf and takes it to one of these ducing crop substitution programs. In the process, maceration pits,” Kamman said, pointing out a new America also hoped to generate sustained economic trend in Bolivian trafficking: Nationals have been growth and strengthen democratic institutions in the increasingly converting the coca leaf to the final prod¬ Chapare. uct — cocaine hydrochloride — themselves, rather Some of these efforts worked better than others. than passing along the coca leaf and its value-added Despite aggressive eradication since 1988, a recent profits to Colombian cartels. However, the U.S. anti-drug effort that has shown Karen Krebsbach, the editor of the Foreign Service die most promise is the alternative development pro¬ Journal, recently returned from a journalism fellow¬ gram, which officials call the “mirror image of eradica¬ ship in Bolivia. tion.” Coaxing peasants, who earn less than the nations

OCTOBER 1996/FOREIGN SERVICE JOURNAL 41 Focus

per-capita income of $770 a year, to abandon coca culti¬ export of bananas and pineapples to Argentina and Chile. vation in favor of legal crops has been die cornerstone of The success of tiiis phase was built on that of the first anti-drag policy for bodi the Bolivian and U.S. govern¬ cycle, from 1983-91, during which U.S. funds helped ments, and there’s evidence its beginning to take root in improve — or in most cases, create — a basic infrastruc¬ die Chapare. “You have to make it attractive and feasible ture of roads, bridges, electricity and utility grids. for die campesino to support his family witii legal crops Ironically, drag traffickers and coca growing have bene- and you have to make it more risky, both economically and fitted as much from the infrastructure upgrades as farm¬ judicially, for him to get into coke,” said Kamman. “Then ers of legitimate crops. Jorge Cala, the former president you try and go after die traffickers to deter people from of the 120-member Association of Pineapple Producers getting into the business of trafficking. We’re hoping tiiis in the Chapare, says better roads helped get his product pays off.” to market faster. “Infrastructure improvements were the Other officials warn this strategy won’t work with both main thing that helped us,” he said. “It helped us be more lands of farmers who settled the Chapare, which include efficient.” the first-generation migrants seeking easy money and die But during that first phase, equally important work long-time pioneers wanting legal work to plan for their was going on behind closed doors: USAID’s experimen¬ children’s future. It’s tiiis second group, say U.S. officials, tal growing station in the Chapare tested, over a decade, which is the most receptive to alternative development, 30 types of fruits and vegetables for their ability to flour¬ and it’s this second group on which the United States has ish in a humid, tropical region receiving between 36-216 pinned its greatest hopes of altering Bolivia’s economic inches of rain a year. The best bets, all being grown now dependence on the coca leaf. in the region, include bananas, pineapple, hearts of palm and passion fruit. Runners up were black pepper and cit¬ One of USAID’s most ambitious and controversial rus fruits like oranges and tangerines. Another profitable alternative development programs ever use for land was found to be forestry or pasture, so offi¬ launched was in 1983 in the Chapare, where its cials hope to encourage more fanners to raise cattle. attempt to convince farmers to grow legal crops has Still, a hectare of pineapple, much more difficult to proved to be a 13-year experiment in frustration and a cultivate than coca, brings only $625 a hectare, compared more important lesson in patience. to the $1,100 a hectare for coca, a crop that requires According to USAID figures, roughly 40 percent of the almost no care, takes only 18 months to grow and can be 175,000 families in the Chapare, or about 70,000, have harvested three times a year once fully productive. Asked switched to legal crops as of 1996, which the report called one farmer, “The illegal economy is winning. If we could “acceptable progress.” The region is now believed to get the price of coca to drop, we wouldn’t need an alter¬ include 70,000 hectares of legal crops or pasture land, vs. native development program. We can’t control tire con¬ 35,000 of coca, a far cry from 1980, when the coca leaf was sumers. What’s the United States doing about them?” planted exclusively.’Tn one respect, you can’t yet call it a Ricardo Paz Ballivian, a deputy' in Congress and long¬ success,” said Ambassador Kamman. “The total amount of time critic of U.S. influence in Bolivia, calls tire alterna¬ cocaine from Bolivia to the United States has not been sig¬ tive development program “a great failure.” nificantly reduced ... but I think we are, as the president “It’s like giving an aspirin to someone suffering from said, at a turning point in a number of ways.” cancer,” he quipped in an interview in his La Paz office. The newest phase, a six-year program from 1991-97 “If someone gives you $20 million to stop growing that cost $120 million, is designed to reduce and ulti¬ cocaine, but someone else offers you $50 million to keep mately eliminate tire production of illegal coca in a growing it, what would you do? This program is like a 400,000-hectare region by helping coca-growing families drop of water in the ocean — it will make no difference.” substitute competitively priced alternative crops to culti¬ Other campesinos would say it depends on how “suc¬ vate, package, market and transport abroad. This year, cess” is defined. “Of course almost all of us still have our organizers say producers turned their first profit with the own small plots of coca for ourselves,” said one farmer,

42 FOREIGN SERVICE ] OU RN Ah! OCT O B ER 1996 Focus

The year 1995 seems to have been a turning point, as it finally became illegal to plant coca leaf and when the crackdown on campesinos began in earnest.

who has switched from growing coca to bananas. Besides, ically spells out Bolivia’s responsibility as a signator to the he points out the banana-coca symbiotic relationship: 1988 Vienna Convention against drug trafficking and lays The coca leaf provides added insurance if his fruit does¬ out specific penalties for growing coca and possessing n’t sell well and the gawky banana stalks provide shade for chemical agents. the fragile coca plants. Its most controversial element is die mandatory appeal provision that makes it easier for suspects to be indefinite¬ The worm seemed to turn in 1995. That was the year ly detained on narcotics charges — sometimes for years. when it finally became illegal to plant coca leaf, as Kamman acknowledged this clause “received the greatest outlined in Law 1008 — and when the crackdown criticism from human rights groups, and rightly so.” on campesinos began in earnest by military and anti-drug But human rights groups were busy reporting on esca¬ forces. It was the first year when leaf production ch opped lating allegations of other abuses in Bolivia. According to — a 5.5 percent decline from the previous year and the first the Andean Information Network, the eradication of year that fewer new plantings were documented. It was that coca fields and the subsequent torture and arrest of farm¬ year that Avo Morales, head of Chapares coca producers ers set off a series of human rights violations. As coca group, first remembered noticing tire change in U.S. growers became more organized and militant, they used rhetoric, with soft words like “sustainable development” hunger strikes and marches to demand Law 1008 be replacing hard words like “drug war.” He noted the change revised, an end to eradication of coca and die decrimi¬ appeared in words only, not in actions. “That was when nalization of the leaf. The worst incidents were reported there was more military arrests and psychological pressure in 1995, when pre-certification media attention sparked on coca fanners, more meddling by the U.S. embassy and political upheaval and exacerbated long-simmering social more covert activity,” he said in an interview at die group’s unrest. One confrontation between anti-narcotics forces headquarters in downtown La Paz. and coca growers left seven dead, including a 6-month- That was also the year, as Morales watched helplessly old baby and a 13-year-old girl. Scores more were wound¬ as Bolivian soldiers brutally beat his campesino comrades ed and hundreds arrested. Human Rights during a march to the capital, that he recalled the change Watch/America accused Bolivian authorities of using in his own attitude toward the United States, its war on excessive force and arbitrary arrest and suppressing drugs and its growing influence in his country. “This is peaceful demonstrations, singling out Bolivia’s U.S.- not our war,” he said. “This is the war of die United trained and funded Mobil Rural Patrol Unit (UMOPAR) States. President Clinton should fight this war there, not as the worst offender, but also blamed the U.S. embassy here in Bolivia.” for not using its “considerable influence to curtail The source of most Bolivians’ rising rage and growing UMOPAR’s abuses.” And Amnesty International damned anti-American sentiment can be traced to the notorious the anti-drug forces’ use of “torture houses” to harass sus¬ anti-drug legislation, Law 1008. Written with the aid of pected coca growers and narcotrafficers. the U.S. embassy, 1008 directly connects the coca leaf, And 1995 was the year Ambassador Kamman began which is legal, to cocaine, which is illegal. Signed in 1988, noticing a distinct turnaround in public opinion toward the law was not exactly written by the North Americans, the U.S. war on drags. but it had U.S. Embassy La Paz’s “fingerprints” on it, said “Admittedly, the people who grow the cocoa are prob¬ Kamman, who arrived in La Paz in 1994. The law specif¬ ably not fond of Americans,” he said. “But what about the

OCTOBER 1996/FOREIGN SERVICE JOURNAL 43 Focus

other 7 million Bolivians who have very different inter¬ One of dre growing population of homeless clrildre ests, who have no interest in promoting cocaine trade?” in La Paz, Pacho says he grew up on tire streets and can’t He said they arc beginning to accept responsibility for remember eitirer of his parents. His crack habit, which their part in the coca trade, he said. “They see that their followed six months of cocaine use, is “not bad yet,” but international image is terrible,” he said. “Bolivia equals he admitted he often goes witirout food so he can afford narcotics. They don’t like that. And they see, finally, that la pasta. He says he prefers crack to gUfa — tire glue he the people who grow the leaf, who tried for many years started sniffing when he was 5 because Iris street friends to argue it wasn’t their problem — it was somebody else were, too. “I always got headaches with gUfa," he says, who converted the leaf and who consumed the final one blackened tootir glaring from the center of his wide product — that they’re now involved in processing that grin. “The cocaina makes me feel better.” He leans leaf. So the notion they are guiltless is much harder to against the filthy but well-organized wooden shoeshine sustain.” kit that holds the tools of Iris trade: He works up to 10 hours daily to buy the two or three lrits he needs to get Perched on the crumbling edge of a sidewalk in through the day. Sometimes he eats for free or borrows a northern La Paz, tire 8-year-old barefoot boy wiped bed at the nearby Qharuru (“Tomorrow” in Quechua), a his runny nose with the back of Iris hand and government-financed homeless shelter for children squinted up at the interviewer. No, he doesn’t want to give housed in an aging brick building on a dusty street with Iris name, but decides to temporarily nickname himself no name. Pacho — dre name of Bolivia’s most popular pop group — Pacho’s cocaine habit is not uncommon, particularly so he can talk about his three-year odyssey with drugs. among the growing numbers of homeless childr en, say

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drug abuse experts. The alarming increase in the number moment to take advantage of that changing attitude to of drug users and addicts — an 11-fold hike in only five build a strong society free of drags.” years — is forcing Bolivians to take another look at the But change has been slow to come to Bolivia, nearly a drug abuse they once believed was just “the gringos quarter centuiy after the U.S. war on drags was declared problem.” Some 4.3 percent of the population, or by President Richard Nixon in 1972. 300,000 people, were drug users in 1994, compared to Does a compromise exist that would satisfy both the only 25,000 in 1979, according to Laura Baldivieso, exec¬ United States and Bolivia? Writing in a La Paz newspa¬ utive director of CESE, the nations largest drag-preven¬ per, Bolivian philosopher H.C. Felipe Mansilla believes tion and education organization. Confirmed addicts the answer lies in maintaining the delicate balance struck make up .3 percent of the population. over the last two decades. “What everyone involved — “What worries me most is the number of new users campesinos, governments, traffickers — wants most is under age 13,” she said in an interview at the La Paz cen¬ something they cannot say openly: the preservation of the ter. She attributes increased usage to several factors, state of things, characterized by de facto tolerance of the including the growing supply of cocaine remaining in production and marketing of coca and all its derivatives Bolivia -— an ironic side effect of U.S. interdiction efforts. and the relative freedom to produce and sell the sacred “We’re now beginning to see a difference in attitude of substance. This ambiguity — no, hypocrisy — is the the people,” she mused. “They’re realizing that drag cause of high prices for [coca].” abuse is possible in our society, too, and they don’t like it. Which just about sums up the nature of coca diplo¬ The campesino is also beginning to be a part of this macy between Bolivia and the United States since change. We need productive people in Bolivia. This is the 1972. ■

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 45 THE RELUCTANT ENVOY

POET, FRANCOPHILE, RENAISSANCE MAN BARLOW:

BIT PLAYER ON AMERICA’S DIPLOMATIC STAGE

BY RICHARD GILBERT

he end of the story of Joel that so far had impeded negotiations. Barlow begins on a stormy Vilna lies a difficult 1,200 miles to the east. In the night on a road leading out of October sunshine, Barlow prepares for a journey into Paris toward the Lorraine, die Polish wastes. Accompanied by his nephew, Tom Berlin and beyond. Barlow, he departs Paris by carriage on Oct. 27. It is autumn 1812. Barlow, Handling the team of six horses is his driver, Louis. 58, is the minister plenipotentiary of the fledgling Soon, the weather changes. It is raining. Unknown to United States. He has been sent to Napoleon Barlow, or to the citizens of Paris, Moscow is aflame. Bonaparte's France by President James Madison to Napoleons great retreat from Russia is under way. negotiate terms under which France would accord Despite die incessant rain, die group crosses the American goods favor and pay compensation for Rhine at Mainz by the end of die first day and reach¬ affronts against neutral U.S. ships in European waters. es Frankfurt four days later. In a letter to his aunt in Aboard the mighty USS Constitution, the ship also Paiis, Tom Barlow complains, ‘There has been known as Old Ironsides, Barlow had arrived at scarcely a day without rain since our departure which Cherbourg more than a year earlier, at a most inaus¬ has made the roads veiy bad and die nights dark and picious moment. Napoleon, in the midst of prepara¬ unpleasant.” From Frankfurt, the carriage hurries on tions to invade Russia, has little time for a small nation in the damp and gloom passing Weimar and Leipzig 3,000 miles away. In spite of Madisons increasing and arrives in Berlin on Nov. 5. That evening, Barlow impatience, Barlow settles down in Paris to wait. and die French minister enjoy a quick respite at die But now, after a year of persistent entreaties and theatre. The following morning, die rain returns as inconclusive diplomatic chatter, Barlow receives a let¬ Barlow and his party head across the Baltic coastal ter from Russia where the Due de Bassano, plain toward Konigsberg (Kaliningrad). Napoleons minister of foreign affairs, is traveling with Beyond die Oder, die landscape changes. No the Grande Armee. The Duke urges Barlow to come more is the countryside prosperous and developed. at once to Vilna (Vilnius) where, he promises, “we will The Prussian roads are so primitive die party can trav¬ immediately be enabled to remove all the difficulties” el only by day and must put up in crowded, dilapidat¬ ed inns. The mud becomes an ever-present compan¬ Richard Gilbert, a freelance writer, is a former ion, a living diing. Barlow writes his wife of “the mud, FSO with the U.S. Information Agency (USIA) die true sublime, the real majesty of mud.” who served in Thailand, Romania, Finland, In Konigsberg on Nov. 11, die first frost arrives Liberia and the former Soviet Union, and die roads freeze. Travel becomes faster but

46 FOREIGN SERVICE JOURNAL/OCTOBER 1996 rougher as the carriage wheels slam against hardened to make its way to Paris on the longer, but more rats and bounce over icy rocks. Approaching the soudierly route, through Krakow and Vienna. They Russian frontier, the countryside turns barren. Signs depart Warsaw on Dec. 18. The countryside is a vast, of war appeal-. A marauding army has passed this way. empty wasteland interrupted by snow-covered pine. Peasants huddle by half-destroyed log houses. At the As diey climb out of die Vistula River valley into the river Nemen, Barlow and Inis party sleep fitfully in hills around Kielce, die landscape appears to Barlow their carriage before the closed gates of the damaged to take on the familiar look of a ragged New England border town of Kovno (Kaunas). Beyond Kovno, winter scene. Inside the bouncing carriage, Joel Barlow writes, ‘The people have tire appearance of Barlow, Connecticut farm boy, poet dre greatest poverty and distress.” The road is now and American citizen-diplomat, clogged with refugees, injured and dying soldiers and begins to cough. Barlow successfully • wagons carrying military supplies. The decaying car¬ casses of hundreds of dead horses litter die roadside. The life of Joel Ballow is die engineered the Everywhere there is carnage. story of the founding of Two days later, on die evening of Nov. 18, 23 days America and of the new nations release of WO U.S. after departing Paris, Joel Barlow reaches Vilna. Just first steps onto die world stage at 250 miles to die east, near Smolensk, Napoleons die end of die 18th centuiy. Barlow captives and negotiated retreating troops are besieged from all sides by ram¬ was a bit player in a time of historic signed treaties with paging Cossacks under die command of Kutusov. In change. Although he never Vilna, an air of unreality pervades. The Due de achieved greatness, he was an able Algiers, Tunis and Bassano assures die diplomatic corps that all is well and accomplished man of and that the emperor will soon be arriving at Vilna to Renaissance talents. Today, his Tripoli, momentarily make his winter headquarters. For two weeks, Bar low name is recognized only by a hand¬ lingers. Snow is falling. ful of American literature students averting a crisis At last, on Dec. 4, a half-frozen courier dashes into and a few historians. On bodi sides Vilna with a despatch for the foreign minister of die Atlantic, he is remembered for young America. announcing the slaughter on the banks of the now mostiy for appearances in the Berezina River days earlier. What had been a French biographies of other, more signifi¬ retreat is now a breadiless flight out of Russia by die cant figures. Still, in a letter to the Marquis de remains of the Grande Armee. The next day just 50 LaFayette in 1788, George Washington observed that miles to the east, Napoleon abandons Iris remaining “Mr. Barlow is considered by diose who are good troops, fixes sleigh runners to his carriage and, alone judges to be a genius of die first magnitude; and to be and disguised, begins a dash to Paris hoping to outran one of diose Bards who hold die keys of the gate by the news of his defeat. In Vilna, panic sets in as which Patriots, Sages and Heroes are admitted to French officials and the diplomatic community join immortality.” the maelstrom of wagons and soldiers deeing west beyond the reach of die Russians. It is 1772, die eve of the American Revolution. A Barlow knows instantly that all hope of a Franco- young man and his fatiier plod northward on horse¬ U.S. treaty are gone. He and his party plunge into the back through die Massachusetts wilderness to New frantic crush, their carriage pointed toward Warsaw, Hampshire. Joel Barlow, 19, a promising youdi with and home to Paris. It is now full winter. In another let¬ “an unconquerable passion for rhyming,” is traveling ter to Paris, Tom Barlow recalls the bone-chilling from his Connecticut farm home to die pioneer vil¬ weadier: “I never felt air that stung like diis.” lage of Hanover. He is to enroll at Moors Charity When they arrive in Warsaw, die temperature is 12 Indian School, where his father has arranged a barter below zero. Widiout pausing to rest, the party' decides diat trades his sons service as a dining room waiter

OCTOBER 1996/FOREIGN SERVICE JOURNAL 47 and cooks helper for Iris education, Americas grandeur. In 1780, he nize Europeans to colonize a huge land room and board. But the youth does secures a post as chaplain witii die Ogrant astride the Ohio River. The shakyJ not stay long. Within a year, his father Third Massachusetts Brigade of die scheme quickly collapses in scandal, dies and he enters Dartmouth College. Revolutionary Army. His performance but Barlow escapes criticism, perhaps He has, however, even greater ambi¬ is lackluster until, roused by die news of because his interest in the democratic, tion. A few months later, with Iris inher¬ die treachery of Benedict Arnold, he liberal ideals of the approaching itance and “middling” references from delivers a fiery political sermon to die French Revolution engage him far Dartmouth, he arrives in the booming troops, which is widely admired. more endiusiastically tiian does die port of New Haven to enroll in Yales Peace declared, Barlow leaves die promotion of the suspect business class of 1778. army in 1783 and, now' married to Rudi interests of distant patrons. Barlows years at Yale College are Baldwin, settles in Hartford to practice For Barlow, die next years are a blur filled with tire sounds of the American law, albeit distractedly. He edits a week¬ of activity on the fringes of die French Revolution. Barlow himself, setting ly newspaper tiiat provides an outiet for Revolution. At first, he and Rutii live in aside budding literary ambitions, heeds his satirical and occasionally scandalous London. A zealous member of a group the call to join die militia and, in sum¬ political essays, and those of his of intellectuals committed to the mer 1775, finds himself in the middle Federalist friends from Yale. The French Revolution, he writes several of the Battle of Long Island. The friends collectively become known as influential political tracts and befriends Revolutionary Army suffers a humiliat¬ the “Hartford Wits” and use their writ¬ the political and religious radical Tom ing defeat and withdraws to ings to urge die adoption of die pro¬ Paine. As a reward for his activities, and Manhattan. Barlow marches with the posed Constitution. especially for his well-received 1792 retreating Americans to White Plains In 1787, his nine-volume epic work. Advice to the Privileged Orders, before returning to Yale. There, tire col¬ poem, “The Vision of Columbus,” Barlow receives French citizenship, lege’s 140 students, with little food and appeal's. With more than 5,000 tenden¬ only tire third American after few supplies, are dispersed with their tious rhyming lines, die work is an Washington and Hamilton to be thus tutors to the countryside. In New instant success and wins Barlow sud¬ honored. Meanwhile, he invests in Haven, the class of 1778 graduates and den celebrity. The poem, Barlow tells French currency instruments and his Barlow, die novice poet, pens ‘The readers, “is designed to exhibit the finances prosper. Prospect for Peace.” Written in endless importance of tiiis country ... as die Departing London’s increasingly heroic couplets, the poem describes noblest and most elevated part of the unfriendly politics, die couple moves to die American independence struggle earth ... die last and greatest theatre for France. Barlows run as a deputy from and offers an optimistic Hew of a “glo¬ the improvement of mankind.” Savoy is unsuccessful. Out of diis inci¬ rious” American future. It is die first in Subscriptions number 170 and allow dent is bom his most famous poem, a series of patriotic poems tiiat will Barlow to retire from otiier activities ‘The Hasty Pudding,” a mock pastoral establish Barlows reputation as a and live modestiy on income from tile for which he is remembered even today. native-born, truly American poet. poems continuing sales. Within Barlows entrance onto the stage of Barlow leaves Yale witiiout money, months, successful editions appeal- in diplomacy in 1795 is occasioned by the position or sponsors. In spite of his London and Paris. At age 33, “no liter¬ prodding of a friend, who obtains bleak prospects, Barlow is, as always, ary American is so well-known, so Barlow’s appointment as U.S. consul to optimistic. To classmate Noah Webster, much read, or the subject of so much Algiers, capital of the Barbary states, he writes: “Let us show the world a few eulogy, as Joel Barlow” comments one “drat little bundle of wretched despo¬ more examples of men standing upon observer in a local newspaper. tisms on die southern shore of die dieir own merit and rising in spite of Mediterranean.” Barlow' is a reluctant obstacles. ... If ever virtue is to be It is now June 1788. After a horren¬ diplomat. His task is to obtain die rewarded, it is in America.” dous sea voyage aboard a flea-ridden release of Americans captured by For die next 10 years, Barlow flits English packet, Joel and Ruth Barlow Barbary pirates and imprisoned as from one pursuit to anotiier as he seeks step ashore in France. They will not see hostages by die notorious Dey of Algiers to create a reputation and establish die America again for 17 years. As a literary and to negotiate an immunity to prevent connections without which he has no man of significant reputation on both the further plundering of American hope of financial success. He has sides of die Atiantic, but with few ships in North African w'aters. already decided on his ultimate goal: funds, he has been commissioned by a He arrives in Algiers in March 1796 He will write an epic poem attesting to pack of Yankee entrepreneurs to orga¬ to find the “hair)' and loadisome” Dey

48 FOREIGN SERVICE ] O U RN A L/OC TO B E R 1996 “excessively annoyed,” despite the early achievements. Still, the On Dec. 20, 1812, as the frigid extravagant gifts Barlow bears. Gold Jeffersonians greet him warmly, as an night ail' swept into die carriage, promised the Dey as ransom in agree¬ honored citizen of two revolutionary Barlows cough worsens. Soon, it is ments with earlier American envoys Republics. Jefferson himself, a friend joined by a frightening fever and chills. 1 las yet to appear. Slowly, after fits and from die early days in Paris, invites The following day, the carriage reaches starts, accompanied at every step by Barlow to Monticello and recommends die village of Zamowiec, a cluster of “unsupportable insults” from the fear ¬ a suitable residence in Washington. houses surrounding a 13th-century some Dey, tfie ingenious Barlow man¬ Barlow is not yet ready, however, to chinch on the banks of the Pilica River. ages to cadge funds from a French- retire to die life of elder statesman. In Barlow, his condition worsening, is put connected banking firm to meet die 1807, “The Columbiad” is published, a to bed in the warm home of the village ransom demands. More than a year pompous, epic-sized affair in ten vol¬ postmaster and a doctor is summoned, later, Barlow arrives safely in Marseilles umes, embellished widi fine engrav¬ but no medicine helps. Barlow dies at having effected die release of more ings, some by Fulton to whom the work noon on the day after Christmas from dian 100 American captives and nego¬ is dedicated. It is considered by many pneumonia, and is hastily buried in the tiated treaties with Algiers, Tunis and to be die finest achievement yet in snow-covered village churchyard. Tripoli. He has averted a crisis for American bookbinding. The news of his death travels slowly young America, but only momentarily. In 1808, die Barlows settle down in to Washington. In President Madisons Returning to his comfortable life in rustic Washington, in a house on a high second inaugural address in March Paris, Barlow' is not reluctant to send liill with 50 acres, for which he pays 1813, he refers to “the sudden death of advice home on relations with Europe, $15,500. He christens his handsome die distinguished citizen who repre¬ particularly with France. Washington, residence “Kalorama,” in honor of its sented the United States in France.” now retired to Mt. Vernon, forwards magnificent view, and it quickly In Paiis, die French take larger one such letter from Barlow to becomes a gadiering place for official note of the passing of a quintessential President Adams. Adams, stung by Washington. Barlow is determined to American who is also a widely admired Barlows audacity to advise, dismisses live out his days at Kalorama as a distin¬ citizen of France. his views in a reply to Washington filled guished poet, public-spirited citizen Barlows beloved Kalorama was with vituperation. “The wretch has and adviser to presidents. tom down in 1889, and in its place destroyed his own character to such a But tiiis is not to be. In Europe, today is die busy Washington, D.C., degree, that I think it would be deroga¬ Napoleons First Empire is at its intersection of 22nd and S streets in tory to yours to give any answer at all to zentth. The map of Europe has been the city’s Kalorama section. Barlow is his letter,” he writes. redrawn. In Europe's coastal waters, remembered on a plaque in die State In Paris, far from American politics, blockades and marauding privateers Department’s diplomatic lobby, his Barlow is die respected center of the are taking a heavy toll on die profits of name listed among those of other American community. Meanwhile, he New England merchants. Despite die American diplomats who died while continues his literary output until, in best efforts of the first four American serving their nation; his portrait hangs 1804, he completes his magnum opus, presidents to protect shipping and the in die State Departments Diplomatic a revised and rewritten “Vision of rights of neutrality — first by isolation, Reception Room. Columbus” entided “The Columbiad.” tiien by treaty—new efforts are need¬ Most recently, Barlow was remem¬ Now it is time to heed Ruth’s pleas “to ed. Facing war with England, bered in the place where his life go home and be respectable.” President Madison turns to Barlow to ended. On May 4, Consul General Manuscript in hand, the Barlows sail unravel U.S. differences with France, Mary B. Marshall of U.S. Consulate for America, arriving in New York in Americas revolutionary ally. Despite Krakow unveiled a restored marble May 1805, nearly two decades after misgivings, but always the patriot, die tablet, first hung in 1812 in the tiieir departure. 57-year-old Barlow agrees. vestibule of die Church of Zamowiec At first light on the morning of in Krakow, which reads, “In memory of America has changed in Barlows Aug. 1, 1811, die Constitution weighs Joel Barlow, U.S. Minister to France absence. Washington is dead and anchor in Annapolis harbor and moves and American Patriot, Poet and Federalism is dying. The country is majestically under full canvas down Diplomat, who died in the service of growing. Already the center of popula¬ Chesapeake Bay to Hampton Roads his country in Zamowiec on Dec. 26, tion has moved west beyond the and to France. Joel Barlow will never 1812, and whose remains rest in die Appalachians. Few remember Barlows again return to his beloved America. grounds of die church.” ■

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VIEWS OF ORIGINAL seller lists; Thomas Grandin and Cecil risks taken by CBS correspondents Brown, who drifted away from journal¬ during World War II, especially BROADCAST NEWS ism after their Murrow days; and Larry Murrows use of live reporting, innova¬ LeSueur, who served at fire Voice of tive since it replaced canned reports The Murrow Boys: Pioneers on America from 1963-83. The “boys” with eyewitness accounts and firsthand the Front Lines of Broadcast also included one woman, Mary interpretation. Murrow is also credited Journalism Marvin Breckinridge, who would quit for developing in die 1950s die maga¬ Stanley Cloud and Lynne Olson, CBS in 1940 to many FSO Jefferson zine television format, with the pro¬ Houghton Mifflin, 1996, $27.95, hard¬ Patterson. But the list excludes fonner gram, “See It Now,” which has been cover, 445 pages. Murrow associate and biographer popularized today with such programs Alexander Kendrick, David as “60 Minutes” and “20-20.” BY CAROLINE V MEIRS Schoenbrun and others who could Murrows decision to leave CBS for claim membership. It’s also somewhat USIA in 1958 because of the quiz show Much already has been written questionable to include Breckinridge, scandals, in which the network was about Edward R. Murrow; prominent who worked only briefly with Murrow. criticized for fixing quiz shows by pro¬ CBS newscaster from 1935-61, director Regardless of how Murrows team viding answers to contestants before of the U.S. Information Agency (USIA) is defined, fonner Time Washington the show was taped, introduces the from 1961-63, and a legendary figure of Bureau Chief Stanley Cloud and for¬ final segment of the book. Morrow' journalistic integrity and broadcast mer Baltimore Sun White House cor¬ publicly attacked CBS executives for news innovation. But The Murrow respondent Lynne Olson have written creating a medium of “decadence, Boys offers a different perspective on a clear, compelling account that reads escapism and insulation,” but it is also Murrow and the industry he helped like a fast-moving novel. They boldly true that he was being slowly displaced create by moving the spotlight away sketch these remarkable people, from the networks center of action. from him and onto his closest associ¬ although Murrow receives hands-off After a leave of absence, he accepted ates. Taking a nostalgic look at an era treatment until his public criticism of President-elect John F. Kennedy’s before entertainment talk shows and CBS management, which eventually offer to become director of USIA. In the soundbite edged aside much led to his resignation. (According to die decades since Murrow and his thoughtful television news analysis, the one anecdote, CBS colleagues not “boys” have passed from die broad¬ book examines the transformation of among the “boys” once formed a casting scene, die authors say commer¬ broadcast news from radio to television. “Murrow is Not God” Club. Murrow cial interests in television have led to a The authors admit their selection of promptly joined.) decline in the quality of broadcast “the boys” might be open to criticism, For readers fascinated by the histo¬ news reporting and “an increasingly focused on journalists recruited by ry of American journalism, the advent blurred distinction between entertain¬ Murrow to staff CBS in Europe before of television and issues of journalistic ment and new's.” and during World War If, including independence and integrity, The Those interested in Murrows Charles Collingwood, Eric Sevareid, Murrow Boys offers a lively and tenure at USIA or a more detailed Howard K. Smith, William Downs and insightful account. Murrow shaped a account of his life and career will have Richard Hottelet, who went on to dis¬ tradition of vivid word pictures to com¬ to look to other sources such as tinguished careers at CBS and other municate die news. Kendrick’s biography, Prime Time: Tlw networks; William L. Shirer, whose Cloud and Olsons narrative Life of Edward B. Murrow, Ann 1941 book Berlin Diary topped best - achieves special impact by recounting Sperbers Murrow: His Life and Times,

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democracy assistance proffered by the United States. Projects in Romania focused on seven major areas: political parties, elections, rule of law, parlia¬ ment, civil society, trade unions and tire media. What went wrong? Carothers’ answer may make It’s March. You’ve just gotten back uncomfortable reading for the U.S. from ten days in New Hampshire’s Agency for International Development White Mountains. And you’ve never felt (USAID) and for many of die NGOs’ so warm in your life. work it funded. He maintains that USAID and its contractors were thrust unprepared into an area of die world Each year the students in the junior class at Holderness School spend ten days hiking where diey had no previous experience; and climbing in the White Mountains in a program known as Out Back. Students bring many of diose who designed policies in back to the classroom a new appreciation of the depth of their own resources and the value of mutual support, while Holderness alumni recall it as one of their lives' richest and most Washington for consumption in defining experiences. But Out Back is only one facet of an adventure in education, Romania lacked an understanding of leadership, and the human spirit that has come to be known as the Holderness Experience. Romania’s murky political culture. The book, which involves inter¬ Holderness School views with 150 Romanians involved Peter B. Bamum, Director of Admissions with democracy budding projects, Plymouth, New Hampshire 03264 603-536-1747 also provides insight into die aid methods of Western European coun¬ tries, which take a different approach to the issue. For example, while the United States tends to fund massive programs with interrelated goals, the Ev TAYLOR IS A Europeans fund more targeted, spe¬ RETIRED FSO & cific projects tiiat have but a single GEORGE GRIEVE IS objective. Carothers’ book is an A RETIRED CIVIL excellent primer on how to avoid SERVICE OFFICER repeating mistakes in democracy building. He concludes that the fail¬ All ure of democracy assistance in Everard S. Taylor George A. Grieve is a full-service financial planning Romania is no reason to stop helping organization that is part of an international financial planning group. potential democracies overthrow the voke of communism. He ends with a Products & services include: Among our specialties: For info or appt: Asset Allocation Financial Seminars plea for America to “cease thinking 405 Onondio Circle Mutual Funds* Pre-Retirement Planning of democracy assistance as a sub¬ Life Insurance Portfolio Diversification Vienna, I/A 22180*5927 stance, like a spray, that the United Variable Annuities* Minimizing Tax Liabilities Tel: (703) 560-2230 Hard Assets Overseas Client Services Fax: (703) 560-7718 States applies to other societies from Stocks and Bonds* EMAIL: [email protected] a certain distance.” Limited Partnerships* We will provide you with a personal, comprehensive financial Aurelius Fernandez, an FSO who plan that will match your investment objectives and risk retired in 1990 from USIA, was tolerance levels with specific public affairs counselor in recommendations geared toward MONEY CONCEPTS Bucharest from 1974-76, and INTERNATIONAL FINANCIAL PLANNING NETWORK reaching your individual goals. worked with an independent media "Securities products marketed through MONEY CONCEPTS CAPITAL CORP.. Member Firm foundation on media projects in NASD/SIPC 1208 U.S, Highway One North Palm Beach. FL 33408 (407) 327-0700 Romania from 1990-95.

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Virginia L. Braddock, 88, widow Before retiring in 1983, Mr. A graduate of Milwaukee-Dowmer of retired FSO Daniel M. Braddock, Campbell served in the Foreign College, Mrs. Swierczek joined the died of sepsis May 20 in Columbia, Md. Service for 34 years, in posts such as Foreign Service in 1952 and served in Bom in Nashville, Tenn., Mrs. South Africa, Ethiopia, Mozambique, Paris and Belgrade before retiring in Braddock accompanied her husband Kenya and Israel. 1957 to marry FSO Walter Swierczek, to posts in Sumatra, Spain, Venezuela, Survivors include his wife, Mar)' which was required by Department of Brazil, the Philippines, Burma, Cuba Morrison Campbell of Alexandria, State policy at the time. She accom¬ and India in his 35-year career, drat Va.; diree daughters, Louise Messano panied her husband on assignments ended with his retirement in 1964. of Annandale, Va., Rebecca Campbell to London, Washington, D.C., Survivors include five children, of Austin, Texas, and Jean Campbell Bangkok and Bonn. In 1974, when eight grandchildren and 10 great¬ of Denver, Colo.; and two grand¬ regulations were changed regarding grandchildren. daughters. working spouses, Mrs. Swierczek re¬ joined the Foreign Service, serving in Bonn, Washington, D.C., Bilbao and Melbourne, Australia as a communi¬ Bruce Buttles. 89, a retired FSO, Betty Morris Faeev, 75, a retired cator before retiring in 1992. died May 16 in Atlantic Beach, Fla., of FSO, died in Albuquerque, N.M., on Survivors include her husband, a complications from Parkinsons disease. July 17. daughter, Lynn Swierczek of During and after World War II, Mrs. Facey was the first woman Alexandria, Va.; and three sons, Mr. Buttles served in dre U.S. Army civil engineer to be employed overseas John Swierczek of Baltimore, Md.; Air Corps. Following an assignment by tire U.S. Agency for International Mark Swierczek of Lexington Park, as assistant military attache in Development (USAID), serving in Md. and Robert Swierczek of Moscow and various government and Nicaragua, the Dominican Republic, Reston, Va. private-sector jobs, he joined the Honduras and Ecuador. Following Foreign Service in 1951. He served in her retirement, she became chief Yugoslavia, India and Turkey. engineer at the University of New' Survivors include Iris wife, Virginia Mexico. Margarita Viesca Wells, 86, Buttles of Atlantic Beach, Fla.; a sis¬ Mrs. Facey was preceded in widow of xetired FSO Henry Bartlett ter, Virginia Land, of Carmel, Calif.; a death by her husband, Thomas Wells, died of a stroke on March 30 in daughter, a son and two grandsons. Facey, and a son, John Facey. Lexington, Mass. Survivors include a son, Martin Bom in Parras, Coahuila, Mexico, Facey; two daughters-in-law, Mrs. Wells accompanied her husband Virginia Baich and Maria Romero; on assignments to Montevideo, Hugh Kemp Campbell, 69, a and two grandsons, all of Uruguay, Nicaragua, Iceland, Cuba, retired FSO, died of a heart attack on Albuquerque. Finland. Romania and Greece. July 8 in Alexandria, Va. Survivors include three children, A graduate of Case Western Robert Wells of State College, Pa.; Reserve University, Mr. Case also did Stephanie Wells Andron of graduate work in African studies as a Patricia Wacker Swierczek, 67, Lexington, Mass., and Richard Wells visiting fellow' at Stanford University’s a retired FSO, died of cancer on Feb. of Lexington, Mass; and seven grand¬ Hoover Institute. 15 in Culpeper, Va. children. ■

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OCTOBER 1996/FOREIGN SERVICE JOURNAL 59 HEPUBLIOUEocBUintf POSTCARD FROM ABROAD Guinea on Mij Mind

BY LAP NGO

Living in Conakry certainly chal¬ The incomprehensible paradox is lenges tire average Westerners that Guinea is truly a beautiful country code of ethics. What is consid¬ This beautiful, rich in gold, diamonds, iron ore, baux¬ ered right and wrong or good and evil ite and pineapples, most of which are in America is tested and questioned at lawless country is largely untouched due to economic every turn in this Western African underdevelopment, government cor¬ country about the size of Georgia. rich in precious ruption and a general xenophobic tem¬ I have lived in Africa the past 24 perament of the population. For expa¬ years with my wife, Peggy, who works metals and stones. triates, diere is nodiing more difficult for die U.S. Agency for International than trying to work within a system Development (USAID), and the conti¬ that is constantiy caving in on itself. A nent’s beauty has been a source of single splint to the market for a days great artistic inspiration. Moving to grocery supplies is exhausting, requir¬ Conakry two years ago, however, rede¬ million, is a city swadied in a veil of red ing a bribe for die merchant and the fined my concept of daily life in Africa. dirt that penneates the body’s every man guarding your car. By the end of Perhaps die most frustrating aspect pore, and living here can be an asphyx¬ the day, morale can fall so low that a of this country is that it has all die iating experience. A walk through the persons ability to reason as a logical, resources needed to feed, educate and city can lead to labyrintiis of window¬ ediical human being is paralyzed. establish a system of basic hygienic less shacks, from which comes an inces¬ Living in Africa is far from being health for its 7.7 million people, yet lit¬ sant buzz of activity. Diseases fester and easy and I’ve learned to do without the tle is done to ensure die best for the dirive, exposing die elderly, children daily comforts one takes for granted in population. Traveling to the northern and immune-deficient people. America. Far more invaluable are die part of the country in search of land¬ Every day die electricity shuts off at exotic people and unexplored lands scapes and portraits of people for my least twice for four-hour intervals, I’ve encountered in my travels, from paintings, I am overwhelmed by the although Guinea has enough hydraulic bridal festivals to black magic rituals. variety of lush vegetation and the lean, power to generate electricity for all its Yet, my emotional resistance has elegant beauty of the Fulani tribe who neighboring countries. Anotiier daily never been so profoundly challenged live in this region. In contrast, return¬ worry is the number of padlocks avail¬ as in my two years in Conakry Perhaps ing to the city of Conakry I am imme¬ able to lock the shed of gas and fuel it is the delicate balance that coexists diately aware of the undercurrent of supplies for each household. Gas, between the lawless chaos and the nat¬ lawlessness that keeps a foreigner like which can cost up to $14 a gallon here, ural beauty of Guinea that creates such me constantiy on edge. is priceless, and thievery is common. a disconcerting sense of unpredictabil¬ Conakry, a dusty capital of about 1 On the coast, the city stops where ity in my innermost self. There are the ocean begins. Local legend has it times, however, at the end of the day Lap Ngo, a Foreign Service .spouse and that where diere once was a beach when die sun sets over the ocean and artist, is the husband of Peggy Ngo, a with sand and palm trees today is but a die fishermen draw in their nets, when Foreign Service secretary for USAID muddy conglomeration of human a momentary calm washes over me, Mission Director John Flynn at U.S. feces and trash — thanks to die 25- and I feel I’ve reached a balance Embassy Conakry. She has also served year Communist regime of Sekou between my love and fear of this in Vientiane, Tunis, Niamey, Rabat, Toure, who refused to spend the coun¬ strange land. Though it’s only momen¬ Abidjan and Yaounde. try's money to maintain its beauty. tary sometimes it’s enough. ■

60 FOREIGN SERVICE ] O U RN AL / O CT OB ER 1996 0 : u>:Tda As a member of the American Foreign Service Association, a<1 Zaire you know you can’t always zhikj stao select the post to which you are Let assigned. That’s why you can’t afford a picky insurance company And while the Claims Act has so many exceptions that the government recommends private insurance, many of those plans are very picky indeed. Some won’t cover you at any of the territories listed on this Lijoya page. And other plans will Colon* cover you, but will do so for a 1 A | „ * large premium. v North Korea Sjm I dJEVl5ld.il Gambia That’s why you need coverage like that afforded by the AFSA NAME Plan. Designed specifically for you, the AFSA Plan covers you no matter where you go - and always at the same low rate. Fortor morem information and an application, return form AFSA desk directly for immediate answers to youi Iran AFSA DESK • THE HIRSHORN COMPANY 14 EAST HIGHLAND AVENUE • PHILADELPHIA, PA PHONE: 2i5.Z4L.8iOO // 800.z42.8zzi // D.C. ARE The AFSA Insurance Plan. Vo# No exceptions, no excuses. The AFSA Personal Insurance Plan PRIVILEGE: -a right, advantage, favor, or immunity specially granted to one.

1996 JEEP GRAND CHEROKEE LIMITED

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