AUGUST 1969 • SIXTY CENTS

IN THIS ISSUE: The Service and The Hill A Modern Personnel System Special Midsummer Mystery

ICAOISCILU Everybody knows that Foreign Service people are unusually perceptive, literate, multi-talented, amusing and well-informed.

In the pages of the FOREIGN SERVICE JOURNAL all these admirable qualities show up monthly— in colorful covers painted by Foreign Service personnel, and in a wide range of articles brimming with vital information, authoritative analysis, sometimes controversial viewpoints, fascinating historical sidelights, and a generous sprinkling of humor.

It’s the professional journal of the American Foreign Service Association. Members may send gift subscriptions to friends and relatives at the special low rate of $5.00 a year.

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AMERICAN FOREIGN SERVICE ASSOCIATION CONTENTS: AUGUST 1969, VOLUME 46, NUMBER 9 PHILIP HABIB, President HARRY K. LENNON, First Vice President JOHN E. REINHARDT, Second Vice President 10 The Scholar and the Policy Maker BOARD OF DIRECTORS Howard Wriggins LANNON WALKER, Chairman THEODORE L. ELIOT, JR., Vice Chairman ROBERT BLACKBURN, Secretary-Treasurer 14 The Department of State: Formal Organization and JODIE LEWINSOHN, Assistant Secretary-Treasurer Informal Culture CHARLES W. BRAY III ROBERT G. HOUDEK Andrew M. Scott JOHN A. MCKESSON EDWARD S. WALKER FRANK S. WILE 19 The Service and The Hill LARRY C. WILLIAMSON JOSEPH C. SATTERTHWAITE, Ambassador, Retired W. Wendell Blancke

STAFF EDWARD P. DOBYNS, Executive Director 23 Operation Sampan MARGARET S. TURKEL, Executive Secretary Anne Penfield CLARKE SLADE, Educational Consultant LOUISE H. FEISSNER, Personal Purchases MARGARET B. CATON, Membership Secretary 25 The Adventure of the Purloined Passport JOURNAL EDITORIAL BOARD John F. Campbell DAVID T. SCHNEIDER, Chairman ARCHIE BOLSTER, Vice Chairman FREDERICK F. SIMMONS 30 Faces of Vietnam CHARLES A. KENNEDY AMBLER MOSS Robert Pell VICTOR B. OLASON

JOURNAL 32 Toward a Modem Personnel System SHIRLEY R. NEWHALL, Editor Lannon Walker BARBARA B. SNYDER, Editorial Assistant MCIVER ART & PUBLICATIONS, INC., Art Direction

ADVERTISING REPRESENTATIVES SASMOR AND GUCK, 295 Madison Ave., New York, N.Y. 10017 (212) 532-6230 DEPARTMENTS ALBERT D. SHONK CO., 681 Market St., San Francisco, Calif. 94105 (415) 392-7144 JOSHUA B. POWERS, LTD., 5 Winsley Street, London 2 Washington Letter W.l. 01-580 6594/8. International Representatives. Ted Olson ©American Foreign Service Association, 1969. The Foreign Service Journal is published thirteen times a 8 Periodical Articles year by the American Foreign Service Association, 2101 E Street, N.W., Washington, D. C. 20037. Second-class postage paid at Washington, D. C. 35 The Bookshelf Printed by Monumental Printing Co., Baltimore. 46 Letters to the Editor

PHOTOGRAPHS AND ILLUSTRATIONS

Elizabeth B. Lawton, “Mogadiscian Montage,” cover; Marie Skora, etching, page 37; S. I. Nadler, “Life and Love in the Foreign Service,” page 47. DID you know that the Executive Office Building—or, as office building, but the Fine Arts Commission says no. As some of us persist in calling it, Old State—is scheduled for a with so many of this colonially-governed city’s affairs, massive renovation whenever money becomes available? The jurisdictional authority is divided. Besides the Fine Arts blueprints have been ready for two years. All that’s lacking Commission, there are the Temporary Commission on Penn¬ to set the reconstructors to work is 21 million dollars. That’s sylvania Avenue, the District Government and the Depart¬ the architects’ estimate. Recent disclosures to Congressional ment of the Interior, which gets into the act because the committees suggest that the final cost might be somewhat avenue has been designated a historic area. The last word, of larger. course, is with Congress. According to the POST’S Wolf Von Eckardt, the interior About the time you read this Lafayette Park should be “is to be restored to its original, ornate glory. . . by open to the public again. Since late winter, just after the last thoughtful adaptation to our own tastes.” The south end will inaugural stands came down, it’s been walled with plywood, be recreated exactly the way it was 80 years ago, in all its eight feet high. Peering through the portholes, passersby “awesome architectural bravado,” and opened to the public. could watch the Park Service installing two big fountains, The functional space will be increased by utilizing the two the plumbing required to feed them, and new sidewalks and capacious inner courts. There’ll be a two-story auditorium— flower-beds. where the President could meet the press—a cafeteria and Meanwhile the paper-bag lunch bunch has had to find executive dining-room, and a canopied plaza for Presidential benches or greensward elsewhere and hurrying bureaucrats receptions. have lost a good many minutes walking around instead of The idea is to give the White House staff more room and cutting across. Still, we’re going to miss that fence. It had comfort, and free the Presidential residence of clutter and been transformed into an open-air art show—a quarter of a congestion. mile or more of exuberant color and uninhibited fancy, And that’s not all. The planners think it would be nice mostly the work of high-school students. The project was eventually to restore the Treasury Building also, to close conceived by Jane Shay of the National Trust for Historic East and West Executive Avenues, and transform the whole Preservation; the overall theme was the nation’s past. You expanse from 17th to 15th into one executive compound of can’t separate history from ideology these days, but nobody marble and greenery. That’s not in the 21-million-dollar raised a fuss about the occasional Black Power slogans that estimate, though. splashed the hoarding. No need to rush down for a last look. Though sometimes the physical fabric of the capital changes with dizzying Magna Carta for Bureaucrats (?) rapidity, at other times and places change moves, if at all, with glacial tread. Farther down Pennsylvania Avenue the It shouldn’t surprise anybody to learn that the malaise “grand plan” is exactly where it was eight years ago—on tormenting young people just about everywhere has spread paper. You may recall, with a little brow-furrowing, that it to government workers. “Robots Rebel” was an eye-catching provides for developing Pennsylvania into what L’Enfant headline in the POST a while back; the manifesto to which it envisioned—a sort of American Champs Elysees, with some referred is titled more sedately “The Condition of the commercial structures of adequate magnificence interspersed Federal Employee and How to Change It,” and is signed by with governmental buildings, and a great National Square at twelve present and former employees. The June issue of the the upper end. WASHINGTON MONTHLY published excerpts. Here again the obstacle is lack of funds. Congress hasn’t It’s pretty strong indictment of government employment voted the money and shows no disposition to do so. policies and practices. The dissenting dozen believe these Meanwhile people with property in the designated area are reflect regrettable conditions in society, e.g. “corporate- getting restive. The owners want to pull down the old military” domination, discrimination against minorities, Willard Hotel—closed these many months—and put up an women and non-conformists of any brand, hostility to

The FOREIGN SERVICE JOURNAL is the journal of professionals in foreign affairs, pub¬ lished thirteen times a year by the American Foreign Service Association, a non-profit organization. Material appearing herein represents the opinions of the writers and is not intended to indicate the official views of the Department of State, the United States Information Agency, the Agency for International Development or the United States Government as a whole. Membership in the AMERICAN FOREIGN SERVICE ASSOCIATION is open to the profes¬ sionals in foreign affairs serving overseas or in Washington, as well as to persons hav¬ ing an active interest in, or close association with, foreign affairs. Dues are $30 annually for members earning over $15,000; for those earning less, dues are $15.00. For subscription to the JOURNAL, one year (13 issues); $6.00; two years, $10.00. For subscriptions going abroad, except Canada, add $1.00 annually for overseas postage.

2 FOREIGN SERVICE JOURNAL, August, 1969 '69 Galaxie 500 2-Door Hardtop— one of 90 great models by Ford.

Take America abroad. Drive a ’69 Ford. Take advantage of your privilege as a member of the U.S. Foreign Service. Use your diplomatic discount to save on an American-made Ford Motor Company car now and pay no U.S. excise tax when it is shipped abroad. For full information: In Washington contact Diplomatic Sales Office, Ford Motor Company, 9th Floor, 815 Connecticut Ave. N.W., Washington, D.C. 20006, telephone—298-7419. In the New York area contact Individual Sales, Overseas Automotive Operations, Ford Motor Company, 153 Halsey Street, Newark, N.J. 07102, telephone—Mitchell 3-1900. From New York, telephone—WO 4-7883.

FOREIGN SERVICE JOURNAL, August, i960 3 imaginative independent thinking. Specifically, the signers want “a voice in . . . basic policy and in decisions affecting the programs they administer and conditions under which they work”, elimination of “privileges of class and status,” such as carpeting and couches; abolition of “rigid work hours” and other “highly arbitrary regulation”, assignments based on “quality and amount of work done” rather than “seniority or political maneuvering,” prohibition of “all invasions into personal affairs,” political expression and “life-styles, as reflected in their appearance and sexual behavior,” the right to refuse to perform work “contrary to their consciences or their sense of justice.” One interesting feature of the manifesto is the disclosure that the signers don’t expect to spend their lives in govern¬ ment service and think it should be official policy to encourage employees to “try other phases of public service or return to the private sector.” Neither the POST nor the MONTHLY disclosed how many of the twelve have already done so.

Man vs. Computer: Progress Report In the morning mail there is a flattering letter. It informs me that I am “one of a very special group” selected, on the basis of a careful check of book clubs, organizations, and professional societies, to receive an introductory eight-month subscription to COSMOS magazine (let us call it) at HALF- PRICE. Should I have any doubts that I am being specially favored, I am advised to “ask the people next door.” (I wouldn’t dream of doing that. If Mac should learn that he had been blackballed by a “very special group” into which I was being invited he might not be so willing to hustle over, with tool-kit and expertise, every time the plumbing or wiring hiccupped.) Now there are several interesting things about this invita¬ FROM WASHINGTON TO KABOUL, through more than tion. (1) The same mail brought a duplicate, identical 200 offices in over 80 countries, AIL) offers you superior service except that the address was in caps instead of caps-and- —with nearly 50 years’ international insurance experience to lower-case, and used an abbreviated form of my given back it up. name. (2) We have been taking COSMOS for at least nine years. (3) I recall that we received the same offer a few months ago—unfortunately just after we had sent in our AIU PERSONAL INSURANCE OVERSEAS renewal. includes — All this conduces to reflection. Automobile liability protection and coverage of damage to your Why pay the full subscription price when you can get the own car ...in policies that satisfy all local legal requirements. magazine for half-price? Why, indeed, pay anything at all? Accident and sickness coverages... from a single-day trip policy The “special introductory certificate” enjoins me: “Send to an annual policy covering 24 hours every day. no money now—we will bill you later. . . If after receiving your first issue you feel it does not live up to expectations, Property insurance of almost any kind you can think of...on mark our bill ‘Cancel,’ return it and owe us nothing.” your personal effects and household effects.. .on jewelry, furs, fine arts... or even your overseas residence. Consider the possibilities. When COSMOS advises you that your subscription will expire shortly, you do not, as in the past, rush off a check by return mail. You wait. In a few weeks there will be another reminder, slightly more importu¬ nate. Ignore it. Still others will follow, at shortening inter¬ AIU PERSONAL INSURANCE OVERSEAS vals, their tone escalating through concern to anguish to may be obtained through brokers and agents, or any AIU office. aggrieved reproof. In was .ington, cail l/-.raa 2.2) >37-6855 Ignore them. Finally you will receive an ultimatum. Biack-bordered, in doomsday prose, it will warn that THIS IS THE LAST ISSUE YOU WILL RECEIVE, unless. . . Ignore it. AMERICAN 102 MAIDEN LANE The odds are that it won’t be the last issue. We are still getting SAFARI, six months after our subscription lapsed. In INTERNATIONAL NEW YORK any event, in a few weeks you are almost certain to receive UNDERWRITERS 10005 a SPECIAL INTRODUCTORY OFFER at HALF THE REGULAR SUBSCRIPTION PRICE. Send it in. Offices, Agents, and. Representatives throughout the world. After the trial copy arrives, wait a judicious period, long enough to suggest that you have read the magazine from CHICAGO • CORAL GABLES • DALLAS • HOUSTON • LOS ANGELES • NEW cover to cover. Then return the bill with the regretful ORLEANS • NEW YORK • PORTLAND • SAN FRANCISCO • SEATTLE • TULSA explanation that you find you and COSMOS are not really WASHINGTON. D. C. compatible.

4 FOREIGN SERVICE JOURNAL, August, 1969 The trouble with the world’s most popular Bourbon

is. ••

...it tastes too good to last.

For over 100 years, people of taste have acclaimed Old Crow for its character. A perfect balance of classic Bourbon bouquet and superb modern smoothness. Perhaps this explains why Old Crow exemplifies the perfect mixer in any company. Certainly it explains why more people empty Old Crow bottles than any other Bourbon.

Tasted any Old Crow lately?

KENTUCKY STRAIGHT BOURBON WHISKEY 86 PROOF. DISTILLED AND BOTTLED BY THE FAMOUS OLD CROW DISTILLERY CO., FRANKFORT, KY. FOREIGN SERVICE JOURNAL, August, 1969 5 By the time the circulation department has recovered A friend of ours, wishing to replenish a library depleted from the snub, another SPECIAL INTRODUCTORY OFFER will by borrowers, sent in subscriptions to six leading book clubs, probably be on its way. in quadruplicate—in his own name, his wife’s and the names There is no good reason, I am persuaded, why this could of their two children. With each form he enclosed the $1 not go on indefinitely—unless, of course, conscience should initiation fee that entitles the new subscriber to three books intervene. as a sort of welcome-wagon bonus. The diabolical cunning of the plan is that it exploits the I dropped in one day to find living-room table and chairs vulnerabilities of two of the scourges of modern society, and stacked high—68 volumes, list value probably in excess of turns them against each other. $400, total investment $24. One of these is the computer. The other is the marketable Only 68, though. One of the clubs—only one—had mailing-list, which makes everybody who has installed a noticed that surname and address on two of the orders were telephone, acquired a credit card, subscribed to a magazine, identical, and asked politely if there might be some duplica¬ joined an organization or paid a tax fair game for junk- tion, no doubt inadvertent. mailers. Somewhere in that one computer labyrinth there must COSMOS buys your name from a dealer in names and have been a skeptical human being, possibly the last of his addresses. It may unwittingly buy it several times, because kind. most of us have used minor variants on different occasions. The circulation department dumps the list into the com¬ Everything in Apple-Pie Disorder puter, and the computer sets dutifully to work grinding out SPECIAL INTRODUCTORY OFFERS. “Violence is as American as cherry pie.”—H. Rap Brown. But—and here is the discovery I think may be momen¬ “Has it ever occurred to you that American football is as tous—COMPUTERS CANNOT COMMUNICATE. American as apple pie or violence?”—Clive Barnes, TIMES They don’t confer. They don’t cross-check. Each goes its drama critic. own way, single-minded, implacable, irreversible. Therein is Make up your minds, fellows. Is it cherry or apple pie their frightening power; therein too their vulnerability. Turn that violence is as American as? And of the two which, if computer against computer, and humanity may yet escape either, is the more American? Can the Folklore division of the fate Stephen Vincent Benet envisaged in “Nightmare the Library of Congress tell us? The DAR? Number Three.” (It describes the revolt of The claims of apple pie are persuasive; it was legendarily the superhuman machines, for that, as prepared by Mom, that GIs fought in World The ones we built to be better than flesh and bone. War II. But what about pumpkin, indigenous to this conti¬ You’ll find it in “Burning City.”) nent and mandatory at the most American of festivals, You may retort that, ingenious though my scheme may Thanksgiving? appear, it won’t work. I think it might. Indeed, it has been When the Wobblies sang of “pie in the sky by-and-by,” proved out experimentally, in a small way. what variety did they have in mind? Worldwide Ill-Risk Insurance leverage For Government Employees Special rates for American Foreign Service Association members

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6 FOREIGN SERVICE JOURNAL, August, 1988 We’re not repeating ourselves. General Motors automotive distributors and dealers actually do offer a special service for Foreign Service personnel on the move. Because it begins with a franchised GM new car dealer or distributor where you are, you enjoy the advantages of dealing directly and locally: selecting the make, model and accessories you require at a firm price. Then you take delivery on your new GM car at your new location, from another franchised dealer or distributor: the car you ordered, equipped as you ordered it and at the price you agreed to pay. Simple ? Service where you are and service where you’re going, plus the same reliable maintenance service and parts for any GM car —anywhere in the world. That’s service on new cars for Foreign Service personnel. GM originated it. See your GM distributor or dealer soon. General Motors Overseas Distributors Corporation 767 Fifth Avenue, New York, N.Y. 10022, U.S.A. Chevrolet • Pontiac • Oldsmobile ■ Buick ■ Cadillac

FOREIGN SERVICE JOURNAL, August, 1969 7 Periodical Articles

“Nuclear Accidents and the ABM,” by Joel Larus. SATUR¬ DAY REVIEW, May 31, 1969, p. 10-13. Pointing to the great foreign dangers of accidents that could occur at the prospective ABM sites, the author gives the details of several such mishaps (Broken Arrows) that have taken place—the Goldsboro, N.C., McGuire Air Force Base, and Palomares whiskey. incidents. “Ten Million Lives.” ARMED FORCES JOURNAL, May 31, 1969, p. 12-13. Deputy Secretary of Defense David Packard believes that President Nixon’s Safeguard program must be instituted without delay to save lives in the event war breaks out with China or Russia. "Bourguiba: Wise Voice of the Arab World,” by David Reed. READERS DIGEST, June 1969, p. 175-182. Portrays the background and career of Habib Bourguiba, President of Tunisia, promoter of progress and moderation, and stabiliz¬ ing influence in the area.

“Sino-Soviet Dispute.” SURVIVAL, May 1969, p. 149-154. The Chinese view on the border dispute is expressed in the Chinese Foreign Ministry Statement of March 10, 1969; then John Gittings concludes that this incident reveals that China is more isolated than ever before in the area of international relations.

“The Jigsaw Facing Mao.” THE ECONOMIST, May 31, 1969, p. 33. Turning the Chinese revolutionary rhetoric into a workable system of government was the goal of the recent convocation of provincial party congresses. “Cultural Revolution Raging in Albania,” by David Bligh. CONTEMPORARY REVIEW, April 1969, p. 185-187. Albania’s withdrawal from the Warsaw Pact has resulted in the coun¬ try’s becoming the first European satellite of Red China. The activities of Albania’s Red Guard are described, and Hoxa’s counteractions against their terrorist program are marked.

“One Man’s Europe." THE ECONOMIST, May 24, 1969, p. 13-15. Ruminations on the trends and traditions and nation¬ al realities that must qualify any precipitate move toward European federalism. Russia is seen as opposed to such a move, while the United States would offer mild support, but “Neither public opinion nor parties nor governments are now ready” for a federal Europe. “EFTA and the NAFTA Proposals: an Economic Ap¬ praisal,” by David Robertson. THE WORLD TODAY, April 1969, p. 145-158. The benefits of the proposed North Atlantic Free Trade Association—“an agreement to elimi¬ nate tariffs on industrial and manufactured goods according to an agreed schedule”—are evaluated with respect to the European Free Trade Association and European Economic Community. “Bonn after Twenty Years: Are German’s Problems Nearer Solution?” by Ralf Dahrendorf. THE WORLD TODAY, April 1969, p. 158-171. German society is rigid, and the govern¬ ment fosters a knd of “systemic fascism” in which the in¬ dividual is economically well off but not free to influence the course of events. “A Reporter at Large: Indonesia,” by Robert Shaplen. THE NEW YORKER, May 24, 1969, p. 42-112; May 31, 1969, p.39-74. The first installment of this series on Indonesia appeared in the November 23, 1968 NEW YORKER. These concluding installments treat in depth the political history of Indonesia during the postwar Sukarno era, the attempted coup of 1965, the resultant change of regime, and the

*IF YOU ARE OVERSEAS. 8 YEARS OLD 90 PROOF. present status of the country under the Suharto government.

8 FOREIGN SERVICE JOURNAL, August, 1969 3 9 IO R 2 5 it E 2 z 13 14 5 V ■6 17 E 8 20 21 R 12 24 S 23 16 27 23 1 19 20 : ?!'•' O Si S3 34 32 N 35 34 37 A 40 4a 54 41 R 43 V]

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FOREIGN SERVICE JOURNAL, August, 1969 9 "One seeks in foreign policy making more poise than panache, more balance and prudence than dash.”

The Scholar and t

Contrasting Views of What Matters

WW W HY is it that scholars feel they HOWARD WRIGGINS in the scholarly community that new are not consulted by policy-makers, and vaulting ideas can be tried out, that their findings are ignored, that no The author, now Director of the Southern Asia Institute at Colum¬ particularly if they imply disturbing one listens when they speak or write? present political, social or economic Why is it that when the foreign policy bia University served as Chief of the Foreign Affairs Division at arrangements. There they face the decision maker consults the scholar, the Library of Congress and as a test of logic, at least, if not of appli¬ only rarely does he receive advice member of the Policy Planning cation. It is to be expected that the which he deems useful? These are Council. scholar who totally rejects “the sys¬ hard but, I believe, not unfair ques¬ tem” cannot engage in fruitful dia¬ tions. They are worth asking because logue with those who are trying to foreign policy is such a dangerous and make it work. Some among us are costly business that we must examine uncomfortable in dialogue with those any impediments to a more effective in responsibility unless we agree with use of all our resources—intellectual all aspects of official policy. Such a and managerial quite as much as purist stance obviously prevents economic or military. of the working assumptions, career fruitful dialogue between decision There are many aspects to this imperatives and perspectives which maker and scholar quite as much as problem as this series of panels will differentiate the ideal-type “scholar” if decision makers insisted on our full explore. One of the more obvious from the ideal-type “decision-maker.” approval of all their policies before present impediments to useful dis¬ In reality, of course, any one individ¬ they asked for advice. course between decision-makers and ual scholar or decision-maker can be Vocabulary. Another obvious, but scholars is the Vietnam imbroglio. It located somewhere along a spectrum less spacious, impediment to commu¬ has generated bitter criticism and stretching from one extreme model to nication is the matter of vocabulary. moral outrage among many scholars the other. And where an individual Both specialties have their jargon, against an Administration which, they finds himself on this spectrum will which impedes communication. It feel, has not either leveled with them have a good deal to do with his ability seems to me that the bureaucratic or been able to provide an adequate to participate fruitfully in the dialogue vocabulary is easier to acquire and use rationale in a situation which has between scholars and decision makers. with reasonable accuracy than is that changed substantially since our in¬ Scholars as critics. Our task as aca¬ of the fully-informed social scientific volvement began. This, in turn, has demics is both to elucidate and to specialist. The more specialized the provoked among the decision-makers transmit elements of our tradition we field of study, the more this will be a sense that the intensity of public deem worthy of passing on to the next the case. Contrasts in vocabulary criticism at home has contributed to generation and of criticizing that tra¬ among social scientists—and I count Hanoi’s intransigence and thus has dition and evoking a vision of a better history one of them for this discus¬ contributed to prolonging the war the mode of thought, of perception, of sion—do make a difference in the intellectuals decry. life. The men of scholarship periodi¬ ease of the dialogue. Historians and But Vietnam is not the main imped¬ cally and often challenge the men of many politicial scientists tend to be iment, in my view. Of greater rele¬ state power, questioning their concep¬ easier to communicate with than vance to our discussion are some of tion of what matters. In the tradition, many economists, sociologists and the more inherent problems in the scholars should be detached from anthropologists. The former’s vocab¬ way of drawing academic scholars official dogmas. They should have a ulary, normal concepts and concerns and foreign policy decision makers penchant for criticism. At the ex¬ are nearer to the decision maker’s into more effective working relation¬ treme, some of us simply can’t stand than are those of the other disci¬ ships. ourselves unless we are destructively plines. But as political scientists The discussion will compare some critical of everything. It sometimes become increasingly fascinated by seems as if only by the sharpness of models, often seeking quantitative ex¬ our critical wit can some among us pression, their vocabulary becomes in¬ Panel paper delivered by Howard Wrig- clearly demonstrate their intellectual creasingly inaccessible to the liberal gins before the American Political Science Association, Washington, D. C., Septem¬ prowess. arts and legally-trained men and ber, 1968. In a more serious vein, it is mainly women who generally are the decision

10 FOREIGN SERVICE JOURNAL. August, 1969 ly. If an academic researcher is brought in, unless he comes from one of the policy-oriented research or¬ ganizations like RAND or MIT’s CENIS, he will be pulled in two di¬ rections. He will want to answer, as best he can, the question posed by olicy-maker the operator. But since his standing within his profession will depend not on the alacrity with which he an¬ swers operational questions but the reputation he develops for contrib¬ uting to his discipline, an important portion of his mind will be devoted to those basic theoretical questions which interest him and his disci¬ plinary colleagues. To be sure, ex¬ perienced researchers may be truly fascinated by the intellectual problems inherent in making that leap from special insight to policy recommenda¬ tion so that the theoretical problems are not in the forefront of their con¬ makers, though if they are economists These points have numerous impli¬ cern. In still other instances, it may be they understand increasingly quickly cations. We look at “forces” and urgently necessary to make progress what the quantitative political scientist “trends,” but he looks at individuals. precisely on the theoretical level be¬ is trying to do. The matter of “typolo¬ He knows from personal experience fore a policy question can be an¬ gies,” “matrices,” “variables,” “repli¬ that a change in a country’s leadership swered with any seriousness. On the cation,” “paradigms,” etc. can be got may make a very real difference to a whole, however, there is tension be¬ through fairly quickly. But sometimes diplomat’s ability to persuade “his” tween the theoretical requirements the paraphernalia of academic dis¬ Prime Minister. Experience in foreign for scholarly standing and the deci¬ course can be an impediment to com¬ policy making tends to strengthen the sion-maker’s need for prompt results. munication, particularly with hard- conviction that foreign policy prob¬ pressed bureaucrats. lems are essentially idiosyncratic, re¬ In an ideal world, of course, the These impediments are not all one sulting from a quite unique combina¬ decision-maker would be sufficiently way, however. The bureaucratic al¬ tion of personality, resource, goal and foresighted and his environment suf¬ phabetical combinations take on a re¬ organizational variables which escape ficiently predictable so that he could ality close to Sukarno’s word magic the confines of scholarly generaliza¬ arrange serious study on major prob¬ acronyms. As decision-makers rattle tion except of the grossest sort. Not lems well in advance. Indeed, there are them off, identifying the steps they being privy to the inside information many long run policy problems de¬ must take, the bureaus they must clear regarding top personalities, others’ serving such careful attention. If the with, it often sounds like an incanta¬ strengths, weaknesses and their mutu¬ questions arc asked in good time and tion. AID is easy; but what is the al relationships, we may discount their competent people are set to the at¬ LAS, the PROAG, the PPBS? Where importance too much. The experi¬ tack, the necessary theory-building lies S/P or G/PM? What on earth is enced hands believe, in contrast, that and policy-oriented research could a NSAM, a SIG, or an IRG? It is only if you understand these and other help decision makers, as we have easier to decipher these alphabetical particularities of specific situations do seen already in the fields of arms horrors and know accurately what you know what really matters to you limitation, economic development, they stand for than it is to be sure and to your government. Thus deci¬ and, somewhat more ambiguously, in what a scholar means in concrete, sion maker and scholar are drawn to studies of conflict strategy. More of policy-relevant terms when he talks focus on different aspects of the for¬ it could be done if there were more airily of “political mobilization,” eign policy reality. foresight and resources. “participation,” “capital output radio” Our deadlines are generally set by Appreciating Limits. Unless he has or “absorptive capacity.” ourselves, but the policy maker’s are devoted considerable time to the mat¬ Different Standards of Relevance too often set by unfolding events. A ter, it is hard for the scholar to ap¬ And Time Frames. Scholars and de¬ state visit may be in the offing; Con¬ preciate the limits which restrict the cision makers have different standards gressmen may be visiting his post; the latitude of the decision-maker or for of relevance and different time frames. budgeting process may be grinding its the latter to understand the potential¬ The scholar is seeking patterns, consis¬ inexorable way with a new deadline ities and limits of scholarship. The tencies, generalizations, looking at po¬ next week. The political leadership of policy maker has his own bureau¬ litical societies as systems. We seek a country may suddenly have changed cratic environment with which he significant social forces, resource by coup d’etat, and a whole new must contend. His immediate su¬ trends, and system capabilities and approach to military and economic periors and the associates he must limitations. But the policy maker must assistance has to be drawn up within a carry with him set bounds to what solve immediate problems, and these four day period. How should we react he can find both of interest and worth present themselves to him in all the to Egypt’s closing the Gulf of Aqaba? considering. Assessments of the do¬ particularity and uniqueness of specific China’s thrust into India? The Czech mestic political situation, of what the history in the making. We push toward liberation drive and the Soviet threat Congress will tolerate, of what the generalization and theory while he against it? Secretary of State will find conceiva¬ must deal with case-specific problems The questioner needs answers to bly acceptable and what the President to be solved. these specific problems fairly prompt¬ will consider or encourage are all sub-

FOREIGN SERVICE JOURNAL, Avgust, 1969 11 tie but often decisive parts of the be as close to that data as possible. secretiveness of the official frustra¬ operator’s working environment. The This is one of the differences between ting; the official finds the indiscreet¬ scholar tends to assume more free the consulting relationships of, say ness and lack of “responsibility” about choice among conceivable alternatives physical scientists to the US Govern¬ what is privileged communication and than is usually within the operator’s ment and foreign policy specialists. what is not disconcerting if not down¬ reach. No doubt, too many operators The former bring to the Government right troublesome. are too inhibited even in thought by the special insights developed in their We play different games in efforts their assessments of the situation in laboratories and manufacturing ex¬ to legitimize our ideas. The decision which they find themselves. The pre¬ perience in this country. Scholars maker knows, for example, from bit¬ natal killing of good ideas before they asked to give advice on foreign policy ter experience that there is no use in see the light of day is all too frequent. matters are more dependent upon in¬ having an idea unless you can sell it; Where energy is limited and bureau¬ formation on their policies, elite or at least arrange a fair hearing for cratic success depends in part on one’s changes, political pressures, etc., and it. Accordingly, he will devote quite ability to economize one’s own efforts the US Government has in hand quan¬ as much time to sustaining and im¬ and apply them to those questions tities of such information. The op¬ proving his access to those who count which are considered relevant by one’s erators themselves are usually steeped in the system as to the intellectually superior, it is not surprising that the in this information already, a fact more rewarding task of conceiving of, academic’s assumptions about con¬ which makes it sometimes necessary shaping and developing the idea itself. ceivable alternatives often seem to for the operators to brief the invited Gaining and sustaining access can be the operator as distractions. advisors on the specific situation they an enormously time consuming task. On the other side of the discourse, are being asked to advise about. And This may require arduous labor to the decision-maker usually has little this reduces the likely incremental develop that sense of confidence: appreciation of what serious research contribution scholars can make in the months of getting cables well drafted requires. Used, as he is, to the quick foreign policy field. and out on time; taking care of visit¬ writing necessary in a foreign service It is a cliche by now that much ing statesmen with ease and flair; sum¬ career or the rapid acquisition of the more information is classified than is marizing a meeting better than anyone lawyer’s expertise on a particular necessary. And useful relationships else, or writing summaries of a meet¬ case, he is unlikely to grasp the need with the academic world would be ing as it is in progress; playing the for time. To be sure, we may have facilitated if more of the non¬ cocktail circuit or being first in in the over-elaborated our methodological sensitive basic data were more readily morning, last out at night. The arts sophistication. If need be, disciplined available to scholars. Indeed, much and drudgery of the bureaucratic scholars can work more rapidly than time invested by talented scholars in game demand an important share of they prefer. A less perfect method¬ attempting to acquire such basic data, your energies if you are to sustain ology may be quite good enough for necessary for legitimate social science your access against all the other com¬ an attack on a policy problem, al¬ analysis and theory building, is peting claims on the time of the men though it will leave the more rigorous wasted, since it is already available in who count. It will be obvious to you of our colleagues uncomfortable in this country, though often not in a that some of our academic colleagues the presence of sloppy, because less form directly usable for systematic have honed this capacity into a fine- than perfect, work. Nevertheless, it scholarship until it is processed differ¬ edged instrument with which they will take more time, more rumination ently. insert themselves into any part of the and more question asking than the There is also the contrast between bureaucratic system they wish. But on usual decision-maker really believes the belief among officials that they the whole, we look down on this sort necessary. need to insure the confidentiality of of activity as somewhat beneath us. Moreover research has very real their data and the scholar’s interest in Our instincts run the other way. Our limitations. Some problems are more publication. In official foreign policy ideas should be so good that they susceptible of being answered by re¬ business, it is held that only if foreign stand on their own, finding their own search than others. Directly applicable officials know they can count on the audience without political prepara¬ answers are usually not forthcoming, discretion of their American counter¬ tions. “Let him read the memo, damn since only those responsible officials parts can they be expected to share it, and accept those ideas whose mer¬ within the context of decision can fully with our officials their deepest its cannot be missed. And if he doesn’t know all the elements that must go problems. Only if that air of confiden¬ buy them, that’s his tough luck! I’ll into a final choice. To ask too much tiality is assured can our officials and publish the same arguments in FOR¬ of the scholars is as wasteful as to theirs work out the multiple adjust¬ EIGN AFFAIRS or WORLD POLITICS.” ask too little. ments which are necessary for effec¬ Contrasting Approaches. More seri¬ tive and trusting relationships be¬ ously, for a moment, each approaches The approach to information is dif¬ tween the representatives of sover¬ the intractable international environ¬ ferent for the two professions. Many eign states. On the other hand, schol¬ ment in a different mood. This might case-specific problems can be dealt ars must publish, not merely to accel¬ be called the contrast between incre¬ with by operators or scholars only erate their promotions and to retain with very detailed knowledge of the their stature in their professions, but mentalism and starting with a clean peculiarities of that situation. The op¬ because they want to share what they slate. The foreign policy decision erator has his enormous flow of spe¬ know in order to promote the growth maker’s environment sets him within cific information received through of their discipline. Moreover, scholars commitments to foreign governments, official channels. For trend analy¬ are by nature critical. Some feel that to Congress, to accepted programs and sis and theory building, the specific, if they find information which reveals personnel. He knows that the personal descriptive classified information may the weaknesses, cupidity, or harshness costs of continuing to do what one has not be all that important, precisely be¬ of political leaders elsewhere, others been doing are less severe than recom¬ cause it so often stresses the case- should know about it. By contrast, the mending or attempting to effect specific data. Yet if one is to be help¬ foreign policy operator deals with abrupt changes in policy. The opera¬ ful to policy makers, who must deal those in power, whether they be saints tor’s vision, therefore, favors incre¬ with specific problems, one needs to or scoundrels. The scholar finds the mental changes in direction, notching

12 FOREIGN SERVICE JOURNAL, August, 1989 cept the limitations which surround a policy choice. Differing Styles. Paralleling this con¬ trasting stance is the contrast which derives from their differing styles of seeking useful insight. The scholar of¬ ten believes he makes progress by argumentation, by confronting one idea with another, by exaggerating differences in order to see where with¬ in the contrasting views the “funda¬ mental” differences really lie. If these logical grounds for differences are uncovered, one view or the other can be dismissed or a new combination of old ideas can be defined to be chal¬ lenged in its turn. Much academic discussion is dialectical in this sense. Moreover, since each scholar is inde¬ pendent of each other in his working the tiller a bit this way or that, experi¬ “responsibility.” The academic is re¬ environment, and if he has tenure, in mentally. Making a major change by warded for the authoritativeness of his job security, he need not hold back means of small steps may avoid arous¬ his studies, to be sure, but he is also his temptation to win hands down. ing potential antagonists and is a ges¬ praised for his originality. A scholar Decision makers are sometimes hor¬ ture towards safety, to see what works who comes up with a new view of the rified by the directness and vigor of and what does not before becoming origins of the Korean War, a new debates between academics. publicly committed. In the dangerous design for the world legal system, a The approach to disagreement in world environment, particularly, now new view on the virtues of single party the decision making community is states or of corruption in Asian poli¬ beset as we are by the nuclear weap¬ usually very different. Since the search ons overhang, abrupt changes may be ties is likely to receive greater atten¬ here is for sufficient agreement to get dangerous. For all these reasons, cau¬ tion than one who goes over familiar on with the particular problem, it may tion is in order and incremental ground with greater care. He may be be an enormous distraction and time- change preferred. no more right than his more cautious waster to try to get down to funda¬ At the same time, the professional colleague, but the fact of his originali¬ mental differences. Tomorrow, in decision-maker, as distinct from the ty is respected and rewarded. And this some future bureaucratic battle you is as it should be. shorter term political appointee, tends may need the support of the man you to fear the future costs of rhetoric, of In the foreign policy decision mak¬ have to argue against today. Ac¬ grand designs, of flowing promises. He ing field, one does not necessarily cordingly, rarely do you press your prefers the quiet work of the inconspi¬ want the most original and imagina¬ point home to the full; you minimize cuous diplomatist to the public declar¬ tive to be the last to have the ear of differences in the search for an oper¬ ation of the man with the Programs the decision maker. Bright ideas are ationally sufficient concensus. This is and Doctrines. fine for the lecture platform, but one frustrating to scholars, who want to But this is frustrating to the politi¬ seeks in foreign policy making more uncover the absurdities in the other cally “committed” scholar. Coming to poise than panache, more balance and fellow’s view, dislike bland discussions prudence than dash. In consequence, foreign affairs with an acute percep¬ and who have no operational need, the bright idea man is at a discount in tion of the unsatisfactory nature of except common civility, to restrain the the foreign policy decision making the world and wishing to improve it vigor of their criticisms. promptly, the committed scholar may community, and the man of prudent want to start at the other end of the policy assessment in the academic These represent differences of oper¬ spectrum, imagining the world we community. ational environment, professional style want and then by the clarity of his I do not intend to suggest that the and criteria for success in either field. vision and the precision of his logic, man of prudent, cautious judgment is There is one perspective I would like put forward such a compellingly lucid always right. Far Eastern policy, for to conclude with. I have referred picture of where we want to go and example, has been bedeviled by over- above to a creative leap from analysing the inescapable steps necessary to get rigid attachment to past dogma; for¬ a policy problem to devising a feasible there that the whole foreign policy eign economic assistance policies have policy solution. machine would veer around to move paid deference to shibboleths which Most of our scholarly disciplines in that desired direction. He is impa¬ none of our foreign policy officials train us for skilled analysis, for a tient with the decision maker’s com¬ dared challenge; nor is the bright idea meticulous reconstruction of what has mitment to past engagements, to all man from the academic world always actually happened, for thorough too familiar fears, to concepts and wrong. But I do suggest there is a search to “explain” what has already ways of looking at reality which de¬ different stance toward policy respon¬ occurred. But the next step is the rive from ten, twenty, thirty years ago sibility. That difference affects the way more difficult. It calls for highly disci¬ and do not fit the logical image of scholars and decision-makers commu¬ plined and systematic speculation as to today the scholar has evoked. He is nicate with each other, and the gener¬ the likely outcomes of following alter¬ horrified by the unwillingness of the al type of answer to complicated native courses of action, and choosing experienced to articulate a fresh inter¬ problems they are likely to seek. The among them that which is most prom¬ pretation of our situation. scholar becomes inordinately impa¬ ising. Such speculation involves pro¬ Originality vs. Responsibility. This tient with the prudent man of respon¬ jecting the present into the future as contrast is closely related to another sibility. The operators often find the that future can be altered by actions one, that between "originality” and academics hasty and unwilling to ac¬ (Continued on page 43)

FOREIGN SEBVIOE JOURNAL, August, 1969 13 Does the Department of State lack an organizational memory? Is there a 20-year lag in adjusting to foreign policy realities?

The Department of State: Formal Organization and Informal Culture ANDREW M.SCOTT The ideology of the Departmen¬ tal subculture cannot be depicted T HE Department of State has with precision because the neces¬ had many critics, including Pres¬ Professor Scott teaches courses on international politics and foreign sary investigatory work has not yet idents. John F. Kennedy once policy at the University of North been done. At best, then, this arti¬ asked Charles Bohlen, “What’s Carolina. His recent writing in cle can offer no more than a pre¬ wrong with that goddamned De¬ these fields includes “The Revolu¬ liminary, partial, and somewhat tion in Statecraft” and “The Func¬ partment of yours, Chip?1 The De¬ tioning of the International Politi¬ impressionistic effort. It should be partment remained an enigma to cal System.” He took his Ph.D. at clear at the outset that there is no him and he developed the “Bundy Harvard and worked with the for¬ uniformity of belief in the Foreign operation” in the White House eign aid agency in Washington Service and that the elements in largely because he could not find a for several years before entering academic life. this ideology are not accepted by way to use the Department of State all Foreign Service officers. There effectively. are dominant modes of belief in the This article will suggest that the I N every large formal organiza¬ subculture, however, even though explanation for many of the inade¬ tion informal organizations arise. the Department is not ideologically quacies of the Department and This is true of both private bureau¬ monolithic. The following are some many of the things that are puz¬ cracies and public bureaucracies. of the prevalent beliefs: zling about it lies in the nature and While students of industrial organi¬ • The problems that are encoun¬ functioning of the dominant subcul¬ zation have long been aware of tered in the conduct of American ture that exists in the Department. informal organizations and their foreign policy are often intractable The beliefs and actions of members importance, far less attention has ones. of the Department are influenced been paid to their impact upon the functioning of governmental agen¬ • They are intractable because by the Departmental culture in of their inherent nature and not cies. These informal structures are much the same way that they are because of anything that the De¬ influenced by the national culture. unplanned and unintended. Be¬ cause they are unintended and do partment of State does or does not The day-to-day working world of a do. Departmental officer will normally not appear on organizational be made up of people who are car¬ charts, their existence often goes • On the whole, the Department riers of the norms of the subculture. unrecognized. The leaders of a functions as well as any reasonable To discuss the operation of the De¬ formal organization make their de¬ person could expect given the partment of State without consider¬ cisions as if these unintended struc¬ nature of the external problems ing the role of the subculture is like tures did not exist and the latter that it faces. trying to explain tidal change with¬ gain their revenge by producing • There are no major internal out reference to the role of the moon. unintended results. Informal orga¬ problems in the Department or nizations are shaped by the formal serious impediments to its effective This article first appeared in the In¬ organizations in which they are functioning. ternational Studies Quarterly (Volume embedded and they, in turn, may 13, Number 1, March 1969). It is re¬ • Critics who say that the De¬ printed here in a condensed and slightly have a great influence upon the modified form with the permission of the workings of the formal organiza¬ partment is not very effective sim¬ editors and the publisher. tions. Not until the role of these ply do not understand the problems 1 Arthur M. Schlesinger, Jr., A Thou¬ informal structures is perceived and that the Department faces and sand Days: John F. Kennedy in the understood can their consequences hence cannot appreciate how well White House (Boston: Houghton-Mifflin, the Department is doing. 1965), p. 431. Bohlen’s answer was, “You be anticipated or controlled. Until are.” Since the Department’s problems then they will have a subterranean • Hardly anyone really does un¬ have persisted over many years and sev¬ eral presidents, however, the answer, existence and will continue to gen¬ derstand how well the Department while intriguing, is obviously inadequate. erate unexpected consequences. is doing. That is because outsiders

14 FOREIGN SERVICE JOURNAL, August. 1969 lack the experience that would problems. may find it difficult to move into a qualify them to comment on the • Because research is of mar¬ non-governmental job or into an¬ work of the Department. ginal value to the Department, the other governmental agency. These • The only experience that is Foreign Service officer will normal¬ factors help explain why the envi¬ relevant to the activities of the De¬ ly prefer not to associate himself ronment in the Department has not partment of State is experience with it. That is, he will not initiate produced many mavericks. gained in the Foreign Service. much research, will not read much • The really important aspects of its results nor concern himself THE informal ideology that has of the foreign affairs of the United with incorporating its findings into currency in the Department is ex¬ States are the political ones—the his thinking. He will want to avoid tremely influential. The individual traditional ones of negotiation, rep¬ assignment to research offices. who enters the Foreign Service nor¬ resentation, and reporting. The ideology also sets forth mally acquires its ideas and norms • Overseas operations of the norms that serve to regulate the as part of the process of being kind conducted by DOD, AID, behavior of these belonging to the socialized into the Foreign Service. USA and CIA, are peripheral to culture. For example, if the Foreign He internalizes them and makes the main foreign policy task. Service is to operate smoothly over them his own. It should be em¬ • In order to deal with foreign a period of time, extremely com¬ phasized that acceptance of the ele¬ affairs effectively, the Foreign Serv¬ petitive behavior has to be ruled ments in the informal ideology does ice officer must acquire the capac¬ out. A series of injunctions are not necessarily reflect on the ability ity to make mature and balanced therefore a part of the subcultural of the individual subscribing to judgments about complex situa¬ ideology: “play the game,” “don’t them. Once an idea is built into the tions. rock the boat,” “don’t make ideology of a subculture it is taken • One can develop this capacity waves,” “minimize risk-taking.” To for granted by the members of the through experience in the same the extent that these injunctions are subculture and ceases to be a sub¬ way that an artist may come to observed, interpersonal relations ject for critical examination. The master his art. remain smooth.2 ideology embodies the conventional • Unfortunately there is no way The individual who does not wisdom of the Department. Be¬ that this knowledge can be ac¬ play the game according to the cause it is conventional, its truths cumulated, analyzed and passed on prescribed rules is likely to find tend to be taken for granted rather to others. colleagues drawing away from him. than scrutinized. An individual can • The skillful conduct of foreign Approval by one’s peers is impor¬ be able and effective in his day-to- affairs involves more of art than of tant to most men, and the threat of day work and still move about in science. That is why the learning general disapproval is a powerful his ideological environment with as process cannot be streamlined or be sanction. Since the Foreign Service little reflective thought as the fish made more efficient. is a relatively small organization, devotes to the water in which he • One of the reasons why the with a high level of interaction swims. conduct of foreign policy is an art and intercommunication among its The elements in the subcultural rather than a science is that each members, informal sanctions are ideology are perfectly plausible, as problem that confronts the Foreign likely to be readily felt. In addi¬ indeed they must be. If the subcul¬ Service officer is unique. tion, the Foreign Service is a career tural ideology did not satisfy the • He must take up each problem service, which means that an minimum requirements of plausibil¬ as it presents itself to him and deal individual’s success and advance¬ ity, it would not be able to perform with it as best he can. He must ment will be directly affected by the various functions that it, as an then pass on to the next problem, the way that his colleagues view organizational ideology, is supposed knowing that its solution will owe him. Finally, escape from the Serv¬ to perform, such as: very little to solutions found for ice is not always easy. After being • Providing an agreed outlook earlier problems. in the Service and abroad for a on major actors in the external • Since this is the case, research number of years, the individual environment, such as other Wash¬ and efforts at “planning” can be of ington agencies and foreign govern¬ little use. 2 Chris Argyris has formulated some of ments; • Research and planning cannot the norms in the following terms: • Providing an agreed under¬ —withdraw from open discussion of in¬ standing of major developments on significantly improve the capacity terpersonal difficulties and conflict; of an officer to assess a situation —avoid being open about interpersonal the world scene and the local and make a wise decision. Planning problems or substantive issues that can scene; be threatening to people, especially • Offering a set of organization¬ is of little value because the situa¬ superiors and peers; tion that arises is never precisely —when confronted with openly competi¬ al goals; the one that is planned for. Research tive behavior mistrust the person exhib¬ • Justifying the organization, its iting it and withdraw from active con¬ actions, and its predilections; invariably suffers from one or frontation; the other of two faults. It is either —when confronted with aggressiveness, • Undermining critics of the or¬ so simple-minded that it does little withdraw, judge the aggressive individ¬ ganization; ual negatively, but don’t tell him so. • Justifying the internal arrange¬ more than spell out the obvious, or “Some Causes of Organizational Ineffec¬ it is so abstract and unrealistic as to tiveness Within the Department of State,” ments of the organization; Occasional Paper No. 2, Center for Inter¬ • Offering a set of norms or val¬ have no practical application to the national Systems Research, Department Department’s day-to-day operating of State, pp. 1-9. ues in accordance with which the

FOREIGN SERVICE JOURNAL, August, 1969 15 individual is expected to behave; • Providing a set of status judg¬ ments for internal use; • Providing a basis for morale. Since the ideology embodies the conventional wisdom of the De¬ partment and its formulations pass for truth, it can also serve, to some extent, as a substitute for organiza¬ tional memory and reflective thought. While plausible, the elements in this ideology, as in most ideologies, are a mix of truths, half-truths and errors. Within the compass of a outsiders to help the Department the Department and it is relatively single article it is not possible to explore its problems by engaging in impervious to the kind of instru¬ examine these ideological elements such debate. The subculture is not ments that are used to effect in detail. What can be done, how¬ receptive to this kind of thing, how¬ change in the formal structure, such ever, is to call attention to some of ever, and outsiders tend to be as Departmental directives and re¬ the important operational implica¬ viewed as both unneeded and in¬ organization plans. The Secretary is tions of these ideological beliefs. competent. One of the easiest a powerful person in the Depart¬ If the subcultural ideology were things on which to get agreement ment but his capacity to command a little less self-congratulatory, it within the subculture is the unwis¬ runs along formal, not informal, might be easier for Departmental dom of establishing any kind of lines. If a Secretary understood the leaders to perceive problems and to foreign policy focus outside of the problem, he might be able to in¬ take appropriate action. These Department of State, for example duce certain cultural changes by leaders should ask and answer such in the White House. The Depart¬ indirection. But he cannot com¬ questions as: What are the special ment is not inclined toward vigor¬ mand the culture to change. characteristics of our organizational ous exploration of policy options The Department of State has of¬ life? What are its advantages and and it is not inclined to let anyone ten been criticized for being tradi¬ how can they be increased? What else do the job for it. tional, sluggish and unimaginative. are its disadvantages and what can Periodically the Department has These defects are not inadvertent be done to minimize them? For been reorganized in an effort to or accidental but represent almost example, while the Department is overcome its defects. These reorga¬ unavoidable results of the working aware of the advantages of a career nizations appear to have had little of the subculture. This is not to service (and they are substantial), effect other than exasperating De¬ suggest that members of the subcul¬ it seems unaware of the problems partmental personel. The reaction ture want to produce unimaginative associated with such a service. Few of the Department’s employees is: policy or try to do so. They don’t. things are cost-free and that in¬ “For God’s sake, leave us alone so If they live in accordance with the cludes a career service. A career we can get on with the job.” But, norms and ideology of the subcul¬ service may encourage parochial¬ since a reorganization never seems ture, however, unimaginative policy ism, undue self-satisfaction, a low to improve things markedly, pres¬ is an almost certain outcome. As estimate of the value of other agen¬ sure soon builds up again and there long as the norms of the subcul¬ cies and groups, excessive caution, is another reorganization. Observ¬ ture prescribe organizational ac¬ organizational rigidity, and an in¬ ers then conclude wryly that the commodation rather than combat, tolerance of change. There is no more things change in the Depart¬ and caution rather than venture¬ mechanism guaranteeing that the ment the more they remain the someness, and as long as the ideol¬ internal features developed by the same. ogy assures members of the subcul¬ Foreign Service are necessarily Reorganization, by itself, is not ture that they are doing a good job, good for American foreign policy. likely to lead to basic changes it is vain to expect bold and inno¬ The Department should examine in the working style of the Depart¬ vative policy from the Department the problems associated with pro¬ ment or in the type of policy prod¬ of State. In order to produce such fessionalization and the functioning ucts that come out of it. The cen¬ policy, members of the subculture of the career service and take ac¬ tral problem of the Department is would have to challenge established tion on the basis of that examina¬ cultural rather than organizational. norms and ideas and engage in tion. It should seek ways to retain It is easy to reorganize the Depart¬ prolonged and vigorous debate. In the advantages of a career service ment, but organizational change short, they would have to engage in while minimizing the costs in¬ does not automatically produce cul¬ precisely the kind of disruptive be¬ volved. tural change, certainly not of the havior that the norms of the sub¬ Subcultural norms discourage vi¬ kind that should be desired. Reor¬ culture are designed to eliminate. gorous policy debate within the De¬ ganization gets at formal structures One of the functions the ideology partment. That being so, a strong but the informal structures are out performs is that of offering comfort case could be made for the estab¬ of reach. The dominant subculture and reassurance to members of the lishment of groups of independent is part of the informal structure of subculture. Since the image of the

16 FOBBIGN SERVICE JOURNAL, August. 1999 Foreign Service in the broader lar problem adequately, they must that which will help the operating American community is not wholly first understand the underlying officer cope with tomorrow’s prob¬ favorable and since the Depart¬ situation. They do not live in a lem in country X. When the opera¬ ment is frequently under attack for world in which there are underlying tor complains that a piece of re¬ its policies or the way that it oper¬ phenomena that need to be under¬ search is irrelevant, he usually ates, this is an important function. stood. Given their starting point, means that it is not country- or Unfortunately, the ideology pro¬ this is thoroughly understandable. situation-specific and is not going to vides this reassurance by incorporat¬ If all significant events are unique, help him tomorrow morning. ing a cluster of defensive elements then there are no recurring prob¬ that serve to insulate the Depart¬ lems and no basis for generalizing THE Department of Defense has ment from criticism. The individu¬ about them. If there is no basis for seemed to find it relatively easy to al who is socialized into the subcul¬ generalization, there can be no use¬ identify problems and to conceive ture learns that there really are no ful accumulation of knowledge. For that systematic thought and analy¬ problems and that, if there were, many Departmental officers there is sis might contribute to their solu¬ outsiders could not help with them no “theory,” there is only practice. tion. A great deal of the best think¬ because outsiders don’t really un¬ Consistent with this, one finds indi¬ ing about national security matters derstand the Department. vidual diplomats writing personal¬ since World War II was done out¬ One of the things that has been ized memoirs, but one looks almost side of the Department by men puzzling about the Department of in vain for important theoretical or having research affiliations: Schel- State has been its lack of interest doctrinal contributions from the Department. ling, Brodie, Kahn, Wohlstetter, in basic research in international Kissinger, Hitch, and so on. During affairs. Objectively the Department Members of the subculture are often remarkably untroubled by the the span of years when many gov¬ has a great stake in the develop¬ ernmental agencies and private ment of new insights, perspectives gaps in their knowledge and under¬ standing. The explanation is that businesses were recognizing that and foreign policy tools, yet an they had problems and needed observer would not deduce that they are unaware of them. They help, State stood to one side, confi¬ from its behavior. The Department don’t know how much they don’t know because it never occurs to dent that the problems that it was has not sought to develop a contin¬ dealing with were safely beyond uing, two-way exchange with the them that they might know more the reach of systematic analysis and research community. It does not than they now know. They are operators par excellence and take inquiry. In terms of its understand¬ have the concept of an active part¬ ing of the importance of basic re¬ nership with the research communi¬ the state of the art as fixed. They operate with that which is given search and the way that research ty directed toward the study of facilities should be used, the State problems of mutual interest. If the and they rarely consider whether Department is two decades behind Department could have perceived the level of insight and understand¬ the Defense Department. The De¬ its real interests it would have be¬ ing might be raised as a result of partment operates in a field that is gun to develop such a relationship deliberate effort. crying out for the development of years ago. Had it done so it might theory and broad insight, yet many now be receiving a flow of useful of its people are not aware that research products. Its stance should foreign affairs can have a theoreti¬ have been: How can we in the cal dimension. Department, working with you on matters of interest to you, produce The habitual time perspective of results which will be helpful to us the Foreign Service officer tends to in our work? Why hasn’t the De¬ be a short one and the subcultural partment’s research behavior been ideology reinforces this tendency. more in keeping with its objective An individual who is trying to keep interests? The impact of the De¬ half-a-dozen balls in the air at one partmental ideology has been par¬ time may not have much patience ticularly unfortunate in the areas of for the discussion of long-term research and planning. Since the holders of the subcul¬ questions. A man who is worried If a problem is encountered, it tural ideology are not aware of about tomorrow or next week may will be deemed to be unique and having problems into which greater regard discussion of the distant fu¬ will be approached de novo. There insight might be possible, the De¬ ture as frivolous and escapist. This is no reason to approach it any partment feels no need to organize is perfectly understandable in other way for there are no general itself to inquire into those prob¬ psychological and organizational problems. There is only a succes¬ lems. Since there are no underlying terms, but it means that the De¬ sion of immediate and unique spe¬ problems, there is no need for “ba¬ partment will be inclined to neglect cial problems. The ad hoc ap¬ sic research.” Surprising as it may the development of long-term pro¬ proach is thus given something akin seem, the Department operates grams. Programs that are unusually to a philosophic basis. without a concept of “basic re¬ broad in scope or are fitted to time Members of the Departmental search.” In practice the term “re¬ spans of a decade or a generation subculture rarely seem to feel that search” refers to applied research. have often arisen outside the before they can deal with a particu¬ Applied research has to do with Department — the Marshall Plan,

FOREIGN SBBVIOE JOURNAL, August. 1969 17 ment has been rather like an alco¬ concerned with administrative and holic who cannot be helped very support functions have relatively much because his defense mechan¬ low status because they are not in isms prevent him from acknowledg¬ the principle chain of command ing that he has a problem and and because the functions that they needs help. represent are not deemed to be The Department has been con¬ very important. The same low tent to forget its own past because status is ascribed to persons in the it doubts that this past provides it Department who are involved in with any leverage on that which is intelligence. Overseas reporting has to come. If each event is unique, high status because it is part of the there is nothing to be learned from traditional job of the line officer. an examination of experience. The Intelligence jobs in the Department Point Four, the Peace Corps, the Department has not built up a dos¬ in Washington have low status Fulbright Act, the Alliance for Prog¬ sier of experiences and lessons however and are seen as staff ress. It is also worth noting that which can be drawn from them. rather than as line activities.5 the Departmental subculture, more Instead, each officer keeps a hand¬ often than not, has been initially ful of personal case experiences in inhospitable to these ideas. The his head. Since no one single per¬ THE Department of State, as a Department continues to dismiss son can experience very much, this formal organization, has a struc¬ ture, an official leadership, and a long-term planning as “theoretical” leaves the basis for decision a bit set of objectives pertaining to while simultaneously resisting the thin. The Department of State American foreign policy. Individu¬ intrusion of long-term consider¬ comes fairly close to being an insti¬ ations into the Department from tution without an organizational als concerned with the Department usually attempt to describe its func¬ the outside. Since outsiders do not memory. This deficiency is not rec¬ tioning in terms of these elements. “read the cables,” they cannot pos¬ ognized, however, any more than sibly have useful ideas about what the others, and therefore no reme¬ The Department also has an in¬ should be done. dial steps are taken. formal structure and a distinctive subculture. Departmental officers The subcultural ideology serves If an organization is not capable to impede the acquisition of are influenced by the ideas and of recollecting its own experience norms of this subculture as well as self-knowledge by a Department and examining it in a systematic by the formal goals of the organiza¬ that stands in desperate need of 3 way, its learning capacity will be tion. Two sets of influences are self-knowledge. The Department limited. And, as a matter of fact, therefore always at work in the does not understand its own work¬ the Department of State is a slow Department, those pertaining to the ings and does not appreciate how learner. For example, the subcul¬ formal organization and those per¬ great is its stake in the achievement tural ideology does not yet ac¬ taining to the informal organiza¬ of such understanding. It should knowledge the importance of many tion. As a consequence, the De¬ invite sociologists and anthropolo¬ overseas operations carried on by partment does not have a single set gists to study it as if it were a other agencies of the government. of objectives but several sets. A foreign culture—and on a priority There has been a revolution in basis.4 Unfortunately, the Depart¬ multiple-objective organization, it is American statecraft since the end concerned with foreign policy goals of World War II. Foreign policy and with the values of the subcul¬ 3 It would not be correct to say that instruments are being used in new ture. the Department has exhibited no interest ways and in new combinations— in achieving organizational insight. It did Sometimes the two sets of values sponsor the Argyris Report and the con¬ economic aid, technical assistance, may be complementary and some¬ ferences on which that report was based. military assistance of a variety of times they may be irrelevant to one Several points should be noted, however. kinds, cultural exchange programs, First, the report was sponsored by the another. Often, however, the two Center for International Systems Re¬ information programs, political war¬ work against each other. Neverthe¬ search, a small organization within the fare programs. Nevertheless, the less, this is not a conflict that De¬ Department lacking even its own line in subcultural ideology does not con¬ the budget. Second, the report met with partmental officers appear to be hostile reception in the Department. There cede legitimacy and real significance aware of. They live their organiza¬ was little inclination to ask whether there to any but traditional foreign policy might not be some basically sound ideas tional lives in accordance with the in the report despite its weaknesses and activities. The overseas activities values of the subculture and it does over-simplifications. Finally, the sponsor¬ of organizations such as DOD, not seem to occur to most of them ing organization in the Department ceased AID, and USIA are not viewed as to exist. (Continued on page 44) •* The concept of a “dominant subcul¬ integral parts of the American ef¬ ture” that is used in this article has con¬ fort overseas but as peripheral ac¬ 5 siderable explanatory power. When the tivities. This represents about a The situation seems not to have Department begins to undertake serious changed very much since Roger Hilsman self-study, however, more refined con¬ twenty-year lag in adjusting to for¬ published Strategic Intelligence and Na¬ cepts are likely to be needed. For exam¬ eign policy realities. tional Decisions (New York: The Free ple, it may develop that in order to Press) in 1956. That volume is inter¬ understand the informal workings of the The subcultural ideology has im¬ laced with evidence concerning the low Department one will need to conceive of plications for the status system in estate of intelligence officers in the De¬ several interacting subcultures rather than partment. Officers concerned with re¬ just a single subculture. the Department. Those persons search have a comparable status.

18 FOREIGN SERVICE JOURNAL, August, 1969 How to handle a CODEL ... a congressional inquiry . . . a protection case . . . visits from constituents

l T has often been said that an W. Wendell Blancke ly say that I deplore this experi¬ institutional weakness of the For¬ ence, however difficult it may Ambassador Blancke retired from have been at certain times. I said eign Service is its lack of a “public” the Service at the end of 1967, to my European colleague: “It is at home—no domestic constituen¬ after a career that included duty perfectly true, of course, that we cy, hence no voter appeal to com¬ as Consul at Hanoi during “the French War," DCM at Vientiane, are exposed to hearings and mend it to Congress. The Depart¬ Consul General at Frankfurt am questioning that may make it ment of Commerce has the US Main and Monterrey and first Am¬ more difficult for us to execute Chamber of Commerce and the bassador to the Congo (Brazza¬ our function when we return to National Association of Manufac¬ ville). His book on the Foreign Service was written in 1968, though our post. But at the same time turers behind it, the Labor Depart¬ a number of updating changes and the average American ambassa¬ ment has the unions, Agriculture footnotes have had lto be incor¬ dor frequently has a domestic has the American Farm Bureau porated since then. political experience that is denied Federation and other groups, but to most of his foreign colleagues. We are compelled by the very State has the support of no active officers—either on duty in Wash¬ pressure group at all. Aside from nature of our Constitution and ington or brought in from the field— government to take account of this lack, the Department and the being called upon to testify. The Service are chronically susceptible and to take into very careful exercise, though often grueling, can account, the attitudes and the to public and congressional mistrust also be beneficial. An interesting feelings within the Congress. 1 because they are thought of, how¬ viewpoint on the subject has been think it makes our role somewhat ever inaccurately and unjustly, as advanced by the Honorable James more difficult in many respects, “representing foreigners.” W. Riddleberger, retired Foreign but I cannot say that I deplore it, Relations with “the Hill”— Service officer and holder of the and the advantages compensate hearings and briefings on substan¬ revered rank of career ambassador, for the difficulties.” tive legislation, world events, poli¬ who made the following observa¬ The advantages do indeed com¬ cy, security, and the like—are han¬ tions in the course of a wide- pensate. Congressmen must be sen¬ dled by the State Department’s ranging article in the May, 1968, sitive to opinion back home, and Office of Congressional Relations, issue of the FOREIGN SERVICE they respond almost seismograph- which not only rides herd on the JOURNAL: ically to vibrations of indignation, considerable volume of congres¬ alarm, or other waves of emotion sional correspondence and related One of my colleagues said to me, I think it was in Belgrade about some aspect of foreign affairs paper work, but also acts as in¬ one night, some years ago, that or the men who conduct them. It is termediary in arranging for the tak¬ he really pitied American ambas¬ therefore well that the representa¬ ing of testimony from departmental sadors because they were bur¬ tives of the working Foreign Serv¬ and Foreign Service witnesses. dened with the necessity of ap¬ ice get a chance to tell their side (Appropriations legislation is han¬ pearing before committees of from time to time, not only with dled separately by the deputy un¬ Congress. As you know, in most respect to policy and appropriations der secretary for administration.) European countries it is the min¬ but also, particularly, on matters The Secretary, of course, is the ister and his parliamentary secre¬ concerning organization and struc¬ chief witness (some twenty-five ap¬ tary, to use the British phrase, ture—testifying at hearings on who carry all of the interventions pearances a year) but the Foreign amendments to the Foreign Service within the Parliament. With us, Service also plays its role, with am¬ Act, for example, or giving testimo¬ bassadors and other high-ranking of course, the system is altogeth¬ er different. We can be and are ny in support of the USIA career Chapter VII from “The Foreign Service summoned before committees of bill. Leading members of both the of the United States," to be published the Congress, even though we are Senate Committee on Foreign in September by Frederick A. Praeger, Inc., New York. Copyright (C) 1969 by non-political. However, in look¬ Relations and the House Commit¬ W. Wendell Blanche. ing back over it, I cannot honest¬ tee on Foreign Affairs—and of

FOREIGN SERVICE JOURNAL, August, 1969 19 several other committees and sub¬ through Salamandria’s pride, the ties—in English, through an inter¬ committees as well—have taken an cement works. Host-country eager preter. Mrs. Doe, meanwhile, has abiding, sometimes even proprie¬ beavers have pressed these visits on been taken on a shopping tour by tary, interest in foreign affairs orga¬ the Embassy against its better judg¬ the embassy ladies, and there are nization and personnel. These ment, but it has taken a chance purchases to be packaged and gentlemen have come to know the since Senator Doe is known to be mailed to the Senator’s Washington Service well, and although they can always ready to do his bit for pub¬ office. Richard Roe, the staff assist¬ play the gadfly when they feel lic relations. ant, has spent the morning confer¬ there is a need for it—and some As things turn out, the visit does ring with several of the country have their personal prejudices— not go at all badly. Mrs. Doe has a team and following up on matters their approach is generally friendly touch of the local ailment, and is of special interest to the Senator. and solution seeking. The Foreign thinking more in terms of a private Lunch is a family affair, and Service people who deal with them, visit to the dispensary at the includes the two embassy staff for their part, learn the limits of chancery than of a public visit to members who hail from the Sena¬ their domestic political base at first one of the host country’s, and she tor’s state. After lunch, there is hand, and this knowledge can balks at the very thought of the some time for relaxation, then off provide a useful guideline in their cement works, but the Senator is to the dispensary and the cement work both at home and abroad. game and holds up his end in good works. The Ambassador has taken Relations with Congress in style. the precaution of sending his ex¬ Washington, however, are only in¬ The substantive part of the pro¬ ecutive assistant ahead as advance cidentally part of the Foreign Serv¬ gram goes off as planned. After the man, to make sure no changes have ice job. Relations abroad, through Senator has had a chance to meet been rung in either program. This direct as well as indirect contact, the embassy staff and digest the pays off: at both stops, the embassy are something else again. With the information sheets prepared for officer spots several added features re-emergence of Congress, since him, the Ambassador’s briefing be¬ and diplomatically scratches them World War II, as a major factor in gins. Each member of the country on the plea that the Senator’s American diplomacy—not only be¬ team speaks his piece, and the Sen¬ schedule is very tight. This plea is cause of its Constitutional preroga¬ ator and his assistant ask questions. literally true, since the Ambassador tives but also because so much Before the session ends, the Senator has neatly contrived to move for¬ more money needs to be appropri¬ contributes a little briefing of his ward the hour of the Foreign Min¬ ated for the expanded US role own, giving the embassy group a ister’s reception so that the Senator overseas—the visit from a member, useful survey of current political may have his early night. By 9 or members, of Congress has be¬ trends and developments back P.M., the party is back at the res¬ come very much a part of Foreign home. In the late afternoon, the idence for a much-appreciated Service life. Senator and the Ambassador call bowl of Chinese soup with toast first on the Foreign Minister, then and American coffee, after which CODEL DOE. SEN AND MRS join forces with the latter for a visit the Senator and the Ambassador DOE AND STAFF ASST ROE to the Prime Minister. There is an ON SCHEDULE, DUE SALA- spend a relaxed hour rehashing and MAN DR1A THUR APR FIRST earnest (and at times edgy) discus¬ evaluating the visit. Next morning AAA FLIGHT 123. RE YOUR sion of current problems in US- CODEL Doe is up betimes and, X-456 SEN APPROVES PRO¬ Salamandrian relations, with the after several stops en route to the GRAM BUT ASKS ENSURE Ambassador’s executive assistant airport for “just one more picture,” EARLY NIGHT FRI DUE acting as interpreter. (The Foreign is ready to hit the trail again. Once DAWN DEPARTURE SAT. Minister speaks passable English; the party is airborne, Embassy the Prime Minister does not.) Light Salamandria phones the next post CODEL (Congressional Delega¬ refreshments are then served, many in line (a short hop) to announce tion) flags immediate attention. photographs are taken, and the departure on schedule and confirm Upon receipt of the above telegram Senator grants a brief, stand-up the Senator’s views on his upcom¬ from a post up the line, Embassy press interview (his second of the ing program expressed by cable the Salamandria starts final prepara¬ day, the first having been at the day before. tions for the two-day visit of Sena¬ airport). That night, the Ambassa¬ Not all congressional visits go off tor John Doe and party. It is happy dor gives his reception, attended by so smoothly, of course, and not all that the Senator has approved the leading Salamandrians, the diplo¬ CODELs are so small. A few legis¬ proposed program, even while real¬ matic corps, and the small Ameri¬ lators like to “lone-wolf it” without izing that fatigue and caprice may can community—with special atten¬ even a staff assistant, let alone a play a role in changing it before the tion shown to anyone from the Sen¬ wife, but many travel in packs and visit is over. The call on the Prime ator’s home state. require considerably more organi¬ Minister and the visit to the Na¬ Next morning, the Senator meets zation—especially in contingency tional Assembly should go all right, with the Speaker of the National planning, since there will almost as should the Ambassador’s and the Assembly in the latter’s office (with invariably be at least one congress¬ Foreign Minister’s receptions on warm beer offered at 10:30 A.M.), man who wants to do something Thursday and Friday, but the party then accompanies his host to the not on the program, or just strays may easily beg off on such events Assembly floor to be introduced off the reservation. Fortunately, the as a dispensary visit and a trip and say a few words to the depu- old maxim of “practice makes per-

20 FOREIGN SERVICE JOURNAL, August. 1969 an intelligent senator or representa¬ tive who had formerly taken a rather parochial view of foreign affairs could no longer ignore the realities when the time came for roll call. When he himself had had on-the-spot acquaintance with the people of other nations—and had debated with their leaders, at times rather warmly—he could not sim¬ ply dismiss their problems by sweeping them under the rug. None of this means, of course, feet” plays a role (though not of device of sending out staff assist¬ that the institution of legislative course to perfection) on the For¬ ants on fact-finding missions of travel has made all congressmen eign Service side. In the immediate their own, especially if the situation omniscient and right-thinking, nor post-World War II era, with con¬ calls for personal contact but not sold them all down the line on the gressional travelers spread all over, necessarily for the presence of a Foreign Service itself. The latter many visits were devoted more to congressman in person. The con¬ will probably continue to provide hedonistic junketing than to states¬ gressional staff assistant of today is Congress with a convenient public man-like fact-finding—while the an able professional, often an ex¬ whipping boy, and continue to have Foreign Service, new to the job of pert in his own right, and in some trouble getting the funds to operate handling such visitations, often cases may actually be the drafting in the manner to which it would muffed it through sheer nervous officer on the project he has come like to become accustomed. None¬ anxiety to please. Then came the to look into. Although these aides theless, the Congress and the Serv¬ ordeal of McCarthy, which made are given every cooperation and ice have come to know each other the Service more nervous and the fittingly entertained, their presence better, and each now realizes that Congress more hard to please than does not put nearly as much strain the other is not always the monster ever. In due course, things evened on a post’s facilities as does that of he once took him to be. off, and as the Service regained a full delegation. confidence it also acquired more They also cost less. Congression¬ URGENT al travel is financed out of a special A CONGRESSIONAL — FOR know-how in the care and feeding IMMEDIATE ACTION A re¬ of CODELs. The lawmakers, for fund set up by statute for that ply or written acknowledgment their part, came to take their purpose. The Treasury Department must be made within Three travels more in stride and their role controls all currencies owned by the Working Days . . . more seriously. United States abroad. Treasury Like the term CODEL, this mi¬ Nowadays, it is unlikely that a transfers funds from these accounts natory message in red on yellow, senior Foreign Service officer will into a special account administered when affixed to a piece of corre¬ have got as far as he has without by the Department of State, which spondence, means quick action, or having gone through many congres¬ estimates what funds will be re¬ else.* The whole Foreign Service sional visits, including not a few quired in a given fiscal year. When establishment, but especially the repeaters. The writer himself was the funds run low in any country, consular element, spends a good bit host to the same Senator three Treasury is notified and it sets up of its time on “congressional inter¬ times, in different parts of the world. additional funds for congressional est” cases. These have to do in the He will never forget the spectacle travel. In some instances, it may be main with visa matters—the immi¬ of the honorable gentleman, sitting necessary to use American dollars gration of constituents’ relatives or in water up to his middle with a to purchase the necessary foreign friends—but may also concern pro¬ broad grin on his face, and demand¬ funds for this purpose. ing to be thoroughly photographed Even during the postwar “roar¬ tection cases and, less frequently, before allowing himself to be suc¬ ing ’40’s”—when it might take a business and commercial affairs. cored. He had been visiting an post weeks or even months to pick The total volume of the Depart¬ AID project where, because of an up the pieces after a congressional ment’s congressional correspon¬ ill-advised choice of location, the visit—the institution of the globe¬ dence more than doubled between 1960 and the beginning of 1968, premises had been flooded with the trotting congressmen had its ben¬ first monsoon rains. The Senator efits for American diplomacy. Leg¬ from 11,200 to 26,481 pieces a had not purposely fallen off the islators who had quite frankly come year. narrow planking that was the only just for the ride could not help but The typical pattern of the corre¬ access route to the site, but once in learn something of the problems spondence routine is as follows: the the water he made the most of an and attitudes of the countries they constituent writes (or talks to) his opportunity to dramatize his oppo¬ visited, and observe at first hand * There is no statutory punishment for sition to the project for his report to the problems American diplomats a failure to comply. The offender is simply posterity. faced in their efforts to achieve US left in an empty room with a loaded In recent years, Congress has goals in those countries. efficiency report, thus given a chance to take the honorable course and select him¬ had more recourse to the useful It also paid off at home. Many self out.

FOREIGN SEBVICH JOURNAL, Augutt, 1969 21 Senator or Representative, the lat¬ proach, and merely wants to see send a circular airgram* to all posts ter writes (or talks to) the State to it that his constituent gets an on the traveler’s itinerary. (This Department, and the Department— answer. Naturally, no member of may also include a word on his if it does not have adequate in¬ Congress expects—or wants—a credit rating, which is customarily formation to provide an answer di¬ consular officer to twist any laws, noted when a business traveler ap¬ rectly—passes the case on to the regulations, or policies on his or his proaches the posts via the depart¬ post, normally by air, but if neces¬ client’s behalf; this is usually made ments of Commerce and State.) At sary by telegram. The post has clear by the wording of the original times, however, a senator or a rep¬ three days from date of receipt to letter of inquiry, for example, “You resentative may write the principal make a reply—definitive if pos¬ may be confident that whatever officer directly to commend his dear sible, interim if not—which it sends consideration you give this request friends the Browns for special con¬ in most cases directly to the con¬ commensurate with your policies sideration. In cases of routine no¬ gressman, with copies to the De¬ will be greatly appreciated.” He tification through channels, the post partment. The congressman in turn does, quite rightly, expect expedi¬ will generally leave it to the travel¬ passes the post’s second copy to his tious and equitable handling of the er to report on his treatment, or not constituent, who may if he chooses case—and, if the answer must be (unless, of course, something has correspond directly with the post no, a reply worded in a manner to gone wrong and explanations are in thereafter.* help soften the blow to his constitu¬ order). When a member of Con¬ ent. gress has taken the trouble to write On the consular side, if the mat¬ Congressional correspondence on personally, however, it behooves a ter is a “protection case”—for ex¬ commercial matters—principally principal officer to follow suit with ample, a constituent worried about concerning trade opportunities for a personal acknowledgement—and the welfare and whereabouts of a and trade complaints of constitu¬ to put himself out a bit more for traveling relative believed mislaid— ents—generates less volume be¬ the visitor when he arrives. the post will set to work along the cause, unless the matter is vital Correspondence apart, there is lines described in Chapter VIII and enough to warrant bringing up the nothing like personal contact to do what it can to get a quick solu¬ big guns, businessmen usually deal smooth a post’s path in its relations tion. Generally, however, congres¬ through the Department of Com¬ with Congress—and especially a sional interest centers on immigra¬ merce or correspond with the post post with a chronically heavy load tion, with the greatest volume com¬ directly. Most “congressionals” in of “congressionals.” A principal ing from those lawmakers with large the commercial field stem from the officer en route to such a post will minority constituencies — some of complaints of individual constitu¬ be well advised, during his prep- whom always want to bring kith ents who, as tourists, have had ping in the Department, to go over and kin from the old country. Of¬ trouble either in getting promised the post’s file of congressional cor¬ ten, as noted in Chapter IV, the delivery of goods paid for or with respondence, pick out the congress¬ congressman’s aid will be enlisted the quality of goods delivered. A men who account for most of the when the constituent’s candidate for Foreign Service post is perfectly traffic, and call on them. This cour¬ immigration has been found inad¬ willing to check on such matters in tesy often pays off, not only missible and refused a visa. order to oblige, whether the request through the original impact of a In most matters of visa interest, comes through Congress or directly show of interest, but also—much the post will be on top of the case from the interested party, but must more so—later on at the post. and able to answer forthwith. Some make it clear that it is not itself a When the going gets rough (as it cases, however, can present thorny collection agency (see Chapter sometimes can, on thorny problem problems and require considerable VIII). cases) a relationship of personal effort and consultation; in such in¬ acquaintance and mutual confi¬ stances, an interim reply will be UNCLASSIFIED dence can help a great deal. sent, to let the congressman (and TO : Neumania, Salamandria, This truism, in fact, might be the constituent) know that action is Upper Tarzania FROM ; Department of State generalized to cover the whole underway. Fortunately for the Serv¬ SUBIECT : Travel of James Brown story of the Foreign Service and the ice, the congressman himself almost REF : CA-1234, April I, 1968 Hill. " ■ always has a common-sense ap- Congressman John Smith of South Dakota has informed the Depart¬ ment of the travel plans of his con¬ * The “airgram” was introduced as a * The problem of world time differ¬ stituent, James Brown of Deadwood. means of bypassing the traditional diplo¬ ences mentioned in Chapter IV can arise Please extend appropriate courtesies matic despatch in cases of urgency not here, too. A Texas millionaire interested and assistance, if called upon. warranting a telegram. It eschewed the in the immigration of a German chemist Iong-windedness and niceties of form to work for him receives his copy of the Although not strictly commercial (such as “I have the honor to report”) post’s reply, signed by the principal officer in nature, a fair bit of correspond¬ and was given priority in airmail delivery —and, being a Texas millionaire, puts in and in distribution. Its venerable fore¬ a person-to-person call to Germany forth¬ ence is also devoted to congress¬ bear was soon supplanted entirely, and with. If the principal officer is at home, men’s recommendations of constitu¬ in today’s usage the airgram is generally the call will like as not catch him at ent businessmen traveling abroad called a despatch (or instruction, if it dinner or later; if the caller is impatient goes out from the Department). In the (as he often is) this means roasing the and, often, combining pleasure with process, of course, its original claim to duty officer and/or the visa chief and a little busman’s holidaying. In priority handling has been lost. Long- having them get to the files and call such cases, the routine channel is windedness has returned, and all that is Texas back before the end of office hours, left is a traditional despatch without the US Central Time. through the Department, which will niceties.

22 FOREIGN SERVICE JOURNAL, August. 1969 Bringing medical care to the water people in Aberdeen harbor requires

Operation Sampan wW V OULD you like to go out in ANNE PENFIELD in or cough medicine which they dear¬ medical sampan?” asked a cheery ly love. She would never give medi¬ Mrs. Penfield. a frequent contribu¬ cine to someone who was really ill but voice over the phone. Though I hadn’t tor to the JOURNAL, will be re¬ any idea what it was all about, I im¬ membered for her article on "The would command him to go to the mediately accepted and agreed to be Birth of an Island,” an eye-witness clinic and would offer to take him ready next morning at the crack of account of Surtsey rising from the there. Even with that inducement, dawn. I had been looking out-our bed¬ northern seas. Mrs. Penfield was they had to be feeling really bad room window, with the harbor of a cultural officer with OWl in before they would consent to go. Hong Kong spread below me, watch¬ London and Belgrade in World She also had to charge them a tiny War II and has since served with ing the little sampans darting around sum for the cough medicine lest they her Foreign Service husband in consume it by the quart. Its sweet among the ocean liners, the busy fer¬ Prague, London, Vienna, Athens ries, and the heavy junks which filled and Reykjavik. taste and soothing effect was very the beautiful harbor with ceaseless ac¬ popular. tivity. These water bugs were obvi¬ When we got to the dispensary, we ously plying a brisk trade, loaded with found a nun doling out medicines to a everything from vegetables to babies, the first British settlements on Victo¬ long line of patients. The sister came but a medical sampan, what was that? ria Island. The harbor of the town is from Italy and when she heard I could long and rather narrow which affords speak her language, she talked nostal¬ A bit of investigation disclosed that good protection from the many gically of her country which she a group of ladies, known as the Cath¬ typhoons which periodically ravage hadn’t seen for 35 years. She belonged olic Woman’s League sponsor and this part of the world. This had made to a nursing order formerly estab¬ finance a floating clinic in Aberdeen it a haven for the water people, who lished in China which had been forced Harbor. One of the activities of this anchor their junks as far up the bay as to flee to Hong Kong when the Com¬ clinic is the operation of a sampan possible. They are so numerous that munists took over. While we were which goes out once a week to bring you can hardly see water between chatting, the Chinese medical students medication to the water people. These them yet myriads of little sampans go loaded up an enormous basket with a are Chinese fisherfolk who are born, scooting about, usually worked by collection of salves, mixtures and oint¬ live and die on their junks. They feel women or children, who with one ments, which we then piled into the the land and the people on it are long, ungainly pole, do miracles of car and drove on down to the harbor. unfriendly and they go ashore only to dexterous maneuvering in between the There two stout Chinese women deftly do business and that as rarely as great, awkward junks. poled the sampan over to the tiny possible. This dislike of the land ex¬ As land is ever the problem in landing stage where we and our medi¬ tends even to medical services, hence Hong Kong, where a rocky island and cines were loaded on board. We had the need of a floating clinic, housed on a few miles of barren earth on the barely stowed the material away when a big junk sitting firmly in the bay but mainland contain upwards of four a crowd of people descended and at least, in the water. million people, the government has squatting on the landing, proceeded to However so great is the ignorance started to fill in the harbor, thus slow¬ produce their children or their own of the water people and so great their ly pushing the junks out to sea. One ailments for the inspection of the distrust of the landlubber, it is hard to wonders where they will go when their nurse. They were all very orderly, no get them to use the clinic, even if they water is gone for tradition has moored pushing and shoving and would ex¬ have heard about it. The medical sam¬ them in Aberdeen for nigh onto a plain their problems to the Chinese pan was therefore devised as a way of century and they fiercely resist mov¬ students who would translate to the finding out where the sick people ing. However there are several other nurse. Many of them were former were, caring for minor ailments and islands around Hong Kong with useful patients, who would bring back their trying to get the really ill people to go bays, so doubtless the junks will move bottles for more medicine, while the to the clinic for proper treatment. The but only as a last resort. student nurse would check their cards sampan is manned by a graduate, We drove to a little dispensary in and make notations on their cases. volunteer nurse, a Chinese medical the middle of a slum alongside the Their ailments were usually coughs, student and student nurse and two harbor where we were to pick up the colds, and minor infections and rashes, women to propel the sampan around. medicines and the Chinese assistants. caused by ill tended cuts and bruises, Bright and early the next morning I The nurse explained to me, as we usually the results of the heat and dirt was picked up by a delightful young swung at frightening speed along one in which they lived. One baby, dressed American woman, married to a busi¬ of the endlessly curving roads which in a brilliant red costume, had an nessman and rather recently arrived in lace the Peak from top to bottom, infected earlobe as its mother had Hong Kong. She was a graduate nurse that she often has trouble with her pierced the ear with a dirty needle. who had volunteered for this job. We patients. They just don’t want to leave The nurse told her she must take the drove over to Aberdeen, a small town their watery homes and go to the rusty ring out but she refused firmly,

FOREIGN SERVICE JOURNAL, August, 1969 23 “When you have eliminated the impossible, whatever remains, however improbable, must be the truth.” —The Sign of Four, by Sir Arthur Conan Doyle

The Adventure of the I I T was in the late Spring of 19— JOHN F. CAMPBELL night. One might refer to it as the when my friend, Vice Consul Mur¬ matter of the Bearded Lady, the dock Soames, was still assigned to quacking duck and the Great Seal the American Embassy in L—n, Our mystery story writer has had of the United States. And it was that his talent for logical inference previous fiction published in the only some hours ago that the singu¬ first came to the notice of his diplo¬ ATLANTIC MONTHLY and ELLERY lar occurrence of the missing ship’s QUEEN’S MYSTERY MAGAZINE. Mr. matic brethren. He was doing pass¬ Campbell is leaving his present captain and the Persian voluptuary port and visa work in the Consular post (Asmara) this summer to resolved itself. The bare bones of Section at the time, while I, for my spend a year as State Department these various incidents I have re¬ sins, labored in the vineyards of the Fellow at the Council on Foreign corded in the consular casebook Relations, there to prepare a re¬ Protocol Section of the Embassy. port on Foreign Service organiza¬ which I have begun to compile in Still, fraternization among the dif¬ tion under the title, "American anticipation of the next visit of the ferent segments of the American Diplomacy: The Case for Re¬ inspectors from Washington. But, Mission was not positively frowned form.” hark!” (he rose and glanced at his upon, and he and I had struck up pocket watch), “I believe, Quimby, an acquaintance of sorts over it is ample time that we returned to shared morning coffee breaks in the taken, but are not those particles our respective offices. That is, un¬ chancery canteen. of bluish deep-pile carpeting lodged less. . . .” “My dear Quimby,” he greeted between the sole and instep of your My friend paused, a gleam be¬ me on one such occasion, “I notice brogues? What office but our Chief’s hind his spectacles. “. . . Unless, that you have had a very difficult possesses such a carpet? Point Two: Quimby, I can induce you to spare morning.” your brows were distinctly knit, twenty minutes from your protocol- “How,” I replied, a trifle peev¬ your lips curled in distaste as you lary reflections to sit in with me for ishly, “do you reach that conclu¬ entered the canteen. I infer from an interview which promises to be sion?” these facts that you have just come unique in my experience.” “In addition,” he continued, with from a not wholly agreeable confer¬ I welcomed the suggestion and a twinkle behind his horn rimmed ence in the Front Office.” readily assented to join my col¬ spectacles, “I rather imagine that “Soames,” I said, somewhat mol¬ league. If truth be told, I was feel¬ your trying experience is in some lified, “you are a wizard.” ing rather seedy and down-at-heel fashion connected with our Ambas¬ Then, not wishing my compan¬ that morning. That stormy session sador.” ion to pursue his advantage (it con¬ in the Ambassador’s office still “Soames, you amaze me. Are cerned a gaffe. I had made in the rankled, for no one likes to be call¬ you a practitioner of mental telepa¬ seating plan for the Ambassador’s ed a “blasted idiot” to his face, es¬ thy, or have you been gossiping dinner of the night before), I hasti¬ pecially when the person doing the with the Ambassador’s secretary ly changed the subject. “And what calling is one’s boss. And some var¬ behind my back?” news from the Consular Section?” I iation from the routine work of pro¬ “Tut, tut,” my friend responded asked. “How go the passports and in his most soothing manner. “Sim¬ visas and repatriations of destitute tocol promised an escape from ple observation and inference, American citizens this morning?” morbid thoughts and the animad¬ Ouimby, nothing more.” Soames put on a more serious versions of the day. It was the work “Explain yourself, Soames.” face than my jaunty inquiry of a moment to deposit my attache “Rudimentary, my dear Quimby. seemed to call for. “In point of fact case in the Clerical Vault, then step A bit of fluff on your shoes and the we have just cleared up a rather across the broad hallway into the strained expression on your face tell nasty business which had given me anteroom of the visa section. the tale. Correct me if I am mis- more than one uncomfortable My host motioned me into his

24 FOREIGN SERVICE JOURNAL, August, 1969 is sinking by the hour. And all because of a strange visitor, who came and went from our threshold not sixteen hours ago.” Soames interrupted the lament, his hooded eyelids flickering. “This visitor was, I take it, a gentleman of Oriental ancestry?” “I cannot say. It all occurred so quickly. But. . . yes, I believe you are right. Chin, the butler, let him in and I had only the most cursory glance at him across the length of the drawing room before he was Purloined Passport taken up to the library and closeted with Papa. My hurried impression was that of a Chinese or East Indi¬ an. I can’t be absolutely sure, of course, but how did you ever guess?” office, knitting and unknitting conquering some inner turmoil of “Never mind!” snapped my prominent brows as he finally, hav¬ indecision that she took a chair, friend, who occasionally shocks one ing first offered tobacco, came to removed white kidskin gloves and with his verbal rudeness. “Continue the subject at hand. resolved to speak. your tale, Miss. It contains points “What do you make of this, “Mr. Soames, I am at my very of distinct interest.” Quimby?” he asked, thrusting wit’s end, and turn to you in an ex¬ Miss Dodgson resumed the towards me a piece of scented note- tremity. Not one week ago you were thread of her narrative. “My fa¬ paper inscribed in a petite feminine good enough to issue me a visitor’s ther, you must know, is Sir Alger¬ hand. The missive read as follows: visa for travel to the United States. non Dodgson. Some decade ago I must now ask that you grant me a the family name assumed a certain “The Twigs” new visa, as I have lost my pass¬ public notice, although Papa has Laburnum Lane port in which the original visa was lived in seclusion since that time.” West Tunbridge stamped.” “Ah,” Soames puffed a smoke Dear Mr. Murdock Soames: “Slowly, Miss Dodgson, slowly,” ring out of his pipe. “I recall the It is my intention to wait upon my friend replied. “You must know incident. It concerned, I believe, you in your offices promptly at that, in accordance with the laws of your late mother, the American eleven o’clock this morning. I my Government, I may only issue actress, Miss Lily Lamour?” hope you may be so good as to you a second visa if you present me “That is true. Mama had retired receive me for an interview with¬ with a valid passport in which the from the stage shortly before my out delay, as the matter I wish to new visa can be entered with a birth. Ten years ago, when I was discuss with you is one of ex¬ rubber stamp. Since you say that only eleven, she perished in the treme urgency and importance. your passport is misplaced, I am famous aeroplane disaster at Gat- My inheritance and the health of quite powerless to comply with wick.” my father are at an end, if you your request until you obtain a “Sorry to hear it, Miss,” I inter cannot help us to obtain a visa. I cannot impress upon you too replacement for the missing jected, placing a manly hand on th strongly. . . . But, no, all of this is document. But you spoke in your young woman’s shoulder. better said in person. letter of a family tragedy. Perhaps “Yes, Mr. Quimby,” she smiled you should acquaint us with the up at me through long eyelashes, “I Yours in Distress, full details of your distress. Your have been half an orphan for these (Miss) Alicia Dodgson face bears traces, behind the many years, and now bid fair to My saturnine colleague puffed makeup, of an outburst of tears, lose my one surviving parent.” easily on his pipe. “An intriguing and I notice that the lovely jade “There is deviltry here, Soames,” communication, is it not? But if I brooch you are wearing (late Man- I suggested. “By the Lord Harry, do not mistake myself, the hour of chu Dynasty if my eyes do not fail we must help this unfortunate eleven is upon us, and, yes that me), is rather askew, indicative of young person out of her difficul¬ would be the tread of our visitor on haste and probable emotion when ties!” the threshold. Come in, Miss you put it on this morning.” “Hush,” replied my colleague. Dodgson. Pray take a seat and let These calming words had, on “Let us come to the point. Your us know more of your difficulty. the whole, a wholesome influence on Mother left a considerable fortune, Mr. Quimby here is, I can assure our pretty visitor. “Oh, Mr. did she not? And peculiar condi¬ you, just as anxious as I to be of Soames,” she commenced again in tions attached to the bequest?” assistance.” plaintive tones, “what am I ever to “You touch, indeed,” said our These words were addressed to a do? My inheritance is lost, and pretty visitor, “the source of my handsome young woman of sorrow¬ poor Papa, the best of fathers, lies difficulty. Mama amassed an im¬ ful mien. It was evidently after unconscious with a brain-fever, and mense amount of money in her

TOSBIOH SERVICE JOURNAL, August, 1969 25 left Father to vent his choleric tem¬ per alone. I thought to bring that card along with me this morning, though I am unable to decipher its meaning, since it is inscribed in a foreign language.” Hereupon our guest extracted from her dainty handbag a card no more than two by three inches in size which seemed to be engraved in Mandarin characters and was covered with a handwritten script on the obverse side. “Well, well,” said Soames, read¬ ing the inscription. “Here is our Rosetta Stone, Quimby, if we have the wit to decipher it. Hmm.” He frowned intently over the scrap of stiffened paper. “Miss,” he said, looking carefully at our guest, “your little problem grows curi- ouser and curiouser. These are deep waters, my friend.” And so saying, he handed me the card, knowing full well that its Oriental message was so much Greek to me. lifetime, from her long career in drawing room at the time, and paid “The document,” Soames contin¬ Hollywood and on the legitimate scant heed to the commotion. A ued, relenting in his mystification, stage. She married late—Papa was visitor was admitted and seemed to “is no more and no less than our nearly fifty at the time, and she a hold some little conclave with first tangible clue. It identifies the few years less—but she retained Chin, whereupon they proceeded bearer as one Mr. Yuan Shi-kai, these funds in her own maiden upstairs in some haste, by the Counselor of the Chinese Embassy name in the United States. The will sound of their footsteps, apparent¬ of this City. There, Miss Dodgson, leaves the entire sum to me, but ly in search of Sir Algernon. A is undoubtedly your strange visitor only on condition that I claim it in short time after—it cannot have of last evening. On the reverse of New York, in person, on my one- been more than ten or fifteen min¬ the card, there is transcribed what and-twentieth birthday. That natal utes—I was distracted from the seems to be a quotation from one of anniversary falls in exactly two novel I had been reading by a the English poets, written, howev¬ days’ time, and I very much fear resounding crash, as if crockery er, in the ideograms of the lower that if I am unable to obtain an were breaking. Then came the Yangtze. To translate roughly, the American visa before then, my in¬ sounds of a loud altercation in mas¬ phrase approximates the famous heritance is forfeit.” culine voices. Through the din I line in Wordsworth: “One concludes, then,” re- discerned my father, normally the ‘The child is father to the man.’ ” arked Soames, “that your pass- mildest of men, shouting, ‘No, rt containing the valid visa was damme, you shan’t!’ or words to “I find,” he then added for the urloined by a person or persons that effect. benefit of Miss Dodgson, “that my unknown, with intent to deny you “I rushed upstairs to the library, recent tour of duty at our Con¬ access to your mother’s bequest. flung open the doors, and found my sulate General in Hong Kong is of Presumably this plot, or complot, father alone, the others having ap¬ some use in helping me solve these was in some sense connected with parently descended by the back little riddles. Three years’ service in the late nocturnal visit to “The stairway. A Ming vase from his that spot assisted me in acquiring Twigs,” Laburnum Lane, of an Ori¬ treasured collection lay shattered rudimentary knowledge of the di¬ ental gentleman. Please to describe on the rug, and he was too dis¬ alects of South China.” the circumstances of last evening, traught to speak, ordering me, by This revelation brought color to and of the loss of your passport.” frantic gestures and a fierce expres¬ the cheeks of our young lady. Miss Dodgson fetched a painful sion, to leave at once and return to “Then, Mr. Soames, you must sigh before complying with my my room. Papers were scattered know that my father spent his youth, friend’s request. “It was not much hither and thither on the floor by some forty years ago, in the China past nine o’clock, I believe. The the fireplace, and Papa seemed like Trade, and resided for many a sea¬ anniversary clock in the hallway a madman, for he was evidently son at Hangchow.” had not struck the quarter chime, throwing them in the fire when I “I confess, Miss Dodgson, that I when an insistent rattling at the had entered. Being curious, on my was not aware of that most sugges¬ front door brought Chin, our Eu¬ way out of the room I snatched up tive fact, but I am nonetheless rasian butler, to answer it. I was a small white calling card which I grateful for the hint. Pray enlighten seated at the far end of the front saw lying on the carpet, and then us, now, as to the subsequent hap-

26 FOREIGN SERVICE JOURNAL, August, 1969 penings of last evening.” Soames seemed moved by this with an impatient gesture and made “I retired to my room, as Papa further revelation, but only mut¬ to rise. “That is precisely the posi¬ had instructed, but not without tered, “Ah, the plot thickens.” tion, Mr. Soames. I may not legally some little pang of curiosity as to “In my general distress over Fa¬ travel abroad until the passport and the purport of his violent interview. ther’s decline,” our client contin¬ visa are found, or replacements are A whim, or, let us say rather, a ued, “I neglected to think of my issued. If, however, I fail to arrive premonition seized me, and some passport. But first thing this morn¬ in New York on the day of my hour later, at half past ten or there¬ ing, when I went to look for it one-and-twentieth birthday, that is abouts, I stole back to the library. among the family papers, which to say, on the day after tomorrow, I The light burned and the room was are kept in a locked strongbox in stand to lose a fortune. But I fear I much as before, though the untidy Father’s desk, I found it was miss¬ have already taken much of your evidences of my prior visit were ing.” time, and see it was foolish in me now cleared away. Imagine my sur¬ “Was the box tampered with?” to expect.. . ” prise, then, at discovering Papa “No. It was unlocked, but noth¬ “Patience, patience, Miss Dodg- slumped in a chair, his glass of port ing else appeared to be missing.” son,” admonished my friend, wav¬ spilled beside him, sunk into a deep “You informed the police?” ing her back to her seat. “You stupor.” “Yes, immediately. They made are quite right not to expect mira¬ The young woman paused for light of my fears, suggesting that cles from a humble vice consul breath, and I feared for a moment I might have misplaced the docu¬ such as myself, but I confess I that I should have to fetch the ment elsewhere, and should con¬ begin to perceive some little light in smelling salts to enable her to pro¬ tinue to search for it. There was this tangled affair. I entertain the ceed. Then, head and shoulders no evidence of foul play, and noth¬ strongest suspicion that your fa¬ bravely raised, she plunged forward ing tangible to connect the disap¬ ther’s sudden illness was not natu¬ with her story. pearance with Sir Algernon’s sud¬ rally induced, and if you will be so “Gussie, the maid, together with den illness and his unexpected visi¬ good as to convey this prescription Chin assisted me in carrying Papa tor of the night before. I do not to the family physician” (while to his bedroom. We fetched the know what to do, or to whom to talking, he scribbled on a piece of doctor, who diagnosed a case of turn!” note paper and handed the results nervous prostration complicated by “Yes, hmm,” rejoined the in¬ to our guest), “I should be most a brain-fever. He has since re¬ cisive Soames. “I can appreciate gratified. Happily,” he went on to lapsed into a deep coma and there your problem, which I readily see explain, “I have troubled to school is little hope, I fear, of a satisfac¬ has its darker side. You are still myself in the herbology of the Ori¬ tory outcome.” legally, being two days short of ent, and I anticipate that symptoms “Did your father make any your twenty-first birthday, a minor such as you describe can have been effort to communicate with you be¬ child. As such you are unable to caused by not more than one of fore consciousness was lost?” apply for a new passport without three known esoteric drugs, for “It is curious that you should the written consent of your parent which I have just written out the ask, Mr. Soames. But, yes, he or guardian. Without the passport antidotes. When the toxin is out of seemed lucid enough for a moment you cannot obtain a visa to visit the the system, put your father on a or two before slipping off, and United States and claim your strict diet of toast and camomile rolled his eyes a bit and gave a mother’s inheritance. Yet Sir Al¬ tea, and he should rally within the hoarse croak. But even then his gernon, such is the precarious state fortnight. Pray further give me the mind was wandering, poor dear, for of his health, is in no condition to name of your parent’s solicitor, and he insisted on addressing me as satisfy your need. A nice dilemma, expect a call from Mr. Quimby and ‘Cathy.’ That was all he was able to Miss, and a most intriguing prob¬ myself this evening at ‘The Twigs,’ say, though he repeated himself lem.” Laburnum Lane, when we would some dozen times:‘Cathy, Cathy!’” Our guest drew on her gloves be glad of an interview with your butler, and I am confident that the little matter of the missing passport may be resolved.” “Oh, Mr. Soames,” our client began, flushing, “I cannot thank you sufficiently. I shall at once ring up Messrs. Spottiswoode & Black of Wigmore Street, who handle Papa’s affairs, and instruct them to give you such information as you may require. Good day to you, Sirs.” And so saying, she departed, leav¬ ing me, I confess, in a state of befuddlement which Soames, a sar¬ donic smile on his countenance, made no attempt to relieve. It was not until seven o’clock of

FOREIGN SERVICE JOURNAL, August. 1969 27 the same evening that I again en¬ provided me with sufficient data to velopments. A supper of cold pork- countered my colleague. We met by explain much of our little mystery. and-mutton pie was hastily gotten arrangement at the dub he fre¬ But one detail, I confess, has through, and only when cigars and quents which is located not far caused me some little perturbation, coffee were brought did my host from the chancery building in and had almost sent me scenting see fit to resume a consideration of Grosvenor Square, planning to take down a false track. Now, I see what he chose to call “the unique a light supper together before de¬ light. Your little reference to Marco features of the case.” parting by train for West Tun¬ Polo, that remarkable traveler who “I confess, Soames,” I ventured, bridge. As I entered the members’ first brought news of China to the sipping some foul, foreign brew lounge, I found my friend smoking Europe of the Thirteenth Century, from the abhorrent demi-tasse, his habitual briar pipe in a favorite has explained the most difficult “that I can make neither head nor armchair by the fireplace. clue.” tail of this. I am at sixes and sevens “Well, Soames,” I commenced, But before my friend could en¬ with respect to this evening’s after he had waved me casually lighten me further, the porter ar¬ alarms, and should welcome en¬ into a neighboring seat and asked rived with a telephone message. lightenment.” the porter to furnish us with bran¬ Perusing its contents, I saw “Well, well,” he chuckled teasing- dies and soda, “what news from Soames’ face turn into a grim ly. But seeing that I was in dead Messrs. Spottiswoode & Black?” mask. Then he rose from his seat earnest, and no doubt aware that I But my friend, when his mind and bade me do likewise. still possess the Irish temper of my is set upon a problem, is not so “Our nocturnal visit to ‘The forebears when not attended to, my easily drawn. He affects at times, I Twigs,’ West Tunbridge, must be companion at last agreed to help must say, an eccentric manner, and deferred to some more suitable oc¬ me. is apt to ignore direct query and in¬ casion. I have just been informed “Think, man, think!” he stead embark upon discussion of that friend Chin, the inscrutable prodded. “Cast your thoughts back the most commonplace subject that butler of that address, failed to to our most interesting interview enters his head. report for his teatime duties and with Miss Alicia Dodgson. What “I have just been reading, seems to have vanished without a suggestive points stick in your Quimby,” he replied, “a most trace from the servants’ hall. The mind?” singular monograph on contem¬ bird is flown! There is a busy I considered for a moment. porary economics.” He paused to night’s work ahead of us.” “Apart from the fact that Miss savor his tobacco. “It reports upon We adjourned at once to the Dodgson is a most agreeable and the serious balance-of-payments nearby Embassy, where I heard well-favored young lady .. .” difficulties being experienced by the Soames confer on the telephone with “Tut, man. Stick to the facts and United States Government, and a high police official of his ac¬ curb the emotions.” alleges that financial disaster looms quaintance. By the time my col¬ “Well, I would say that the for our country unless the most league condescended to explain his Chinese element of the case is most strenuous countermeasures are actions, we were both seated in a obtrusive.” promptly taken.” taxi, headed for an address in “Exactly. What else?” Carlton Gardens. “Indeed?” I countered with But I must have been too slow what, I trust, was at least a trace of “I had taken the precaution ear¬ for my friend, for he proceeded to irritation. Then, to repay the rascal lier in the day,” he announced, “of answer his own question. “Beyond for his irrelevance, I added, “You informing our Ambassador and the the facts of the case as related by may be interested to know, Metropolitan Police of the possible Miss Dodgson, there were two Soames, that I have also embarked implication of the Chinese Embassy riddles, which gave me some trou¬ upon a course of light reading. I Counselor, Mr. Yuan Shi-kai, in a ble at first. From the beginning it am halfway through the interesting criminal conspiracy. Now, Commis¬ was clear enough that a conspiracy biography of Marco Polo written by sioner Sedgwick informs me that was afoot, utilizing some little- Professor Stroud and highly recom¬ our missing butler was observed known skeleton in the family clos¬ mend it.” not long ago to enter the walled et, to deprive our client of her “Capital!” responded Soames. A premises of the Chinese diplomatic inheritance. Sir Algernon is now a glimmer of intelligence seemed to compound. The fox is at bay, and man past seventy, who in his youth suffuse his sallow features, and he the hounds close in for the kill!” resided in the Orient. That fact is rose and clapped me on the back, “You mean. .. ?” most suggestive. And it was evident to my intense embarrassment. “Precisely. The area is surround¬ from the circumstances of last “Quimby, you are invaluable! You ed by plainclothes detectives, who evening’s visit to ‘The Twigs’ that have given me just the hint I was will certainly apprehend our Mr. some fact relating to Sir Algernon’s looking for.” Chin and his friends, should they distant past in China had been “Really, Soames, you are too make any effort of escape.” forcefully brought to light forty much for me. Pray explain your¬ At the Carlton Gardens stop, years later by an official of the self.” Soames had further converse with a Chinese Embassy.” “Come, come, my dear fellow, responsible Government official. “I follow you,” I interjected. you mustn’t pretend to be so dense. Then we returned to the club in “And there is Chin, the Eurasian My visit this afternoon to the solici¬ Grosvenor Square to complete our butler, who disappeared. His flight tors of Sir Algernon Dodgson interrupted repast and await de¬ proves he was trying to blackmail

28 FOREIGN SERVICE JOURNAL, August, 1989 his master. I shouldn’t be surprised my very rough translation. You re¬ Aramaic word for bread, such as if the Chinese Embassy Counselor call? ‘The child is father to the the ‘manna from Heaven’ received was on to his game, and called on man.’ ” by the Children of Israel in their Sir Algernon to put a stop to it.” “Yes, yes.” I finished my coffee hour to need. Manna is thus taken “No!” Soames insisted, surprising¬ and ordered a more substantial to mean the special gift or provision ly. “Let us wait until the unfortu¬ beverage. of Divine Providence.” nate Chin is able to speak for him¬ “Those words, I saw, were no “Exactly, my friend, and it con¬ self, before drawing conclusions. mere Chinese paradox, but had veys a roughly similar meaning in There were, as I say, two riddles. some deeper, more sinister mean¬ Sanskrit and Arabic. Now, let us go You, Quimby, with the aid of your ing. They sufficiently startled Sir one step further. ‘Father,’ in the Marco Polo, have unlocked their Algernon so as to permit instant Chinese sense of the inscription, meaning for me.” entre to his unknown diplomatic can also be taken to mean ‘provi¬ “How?” I inquired. visitor. From the evidence, they also der.’ At last the meaning of the “There was first the strange in¬ caused him to ransack his personal message became clear to me, once scription on the visitor’s card, papers and destroy a number of I had traversed these linguistic which I tentatively translated as them. You recall that when Miss stumbling blocks.” being a quotation from Words¬ Dodgson first visited the library, “I’m afraid I do not at all follow worth. Secondly there was the oral she found documents strewn on the you, Soames.” evidence of Sir Algernon himself, floor by the fireplace, most of “Of course you do. The message who called to his daughter before which must have been subsequently now clearly reads: ‘The child (Miss sinking into a coma the words, burned, for the room was tidy only Dodgson, one presumes) is provi¬ ‘Cathy, Cathy!’ ” an hour later. It is my strong suspi¬ der to (or of) the Providential Gift “In severe nervous strain, people cion that those papers which were (or bequest).’ ” are apt to utter all kinds of non¬ burned related in some way to the “That,” I felt compelled to tell sense.” butler, Chin, and to the inheritance my friend, “is only more gibber¬ “No, Quimby, there you are mis¬ of Miss Alicia Dodgson. And fur¬ ish.” taken. Sir Algernon was prostrate ther, that a duplicate set of the “To you, perhaps, but not to the with shock, and was also suffering papers in question has recently bearer and recipient of the message. the effects of a noxious drug, which come into the possession of the But I perceive we must call an was placed in his port, no doubt, by Chinese Embassy.” intermission to these strenuous cere¬ his visitor. As he fought for con¬ “You have not explained what brations, for Commissioner Sedg¬ sciousness he tried to convey a you made of the inscription on the wick, whose portly figure has just message, and was able to utter only back of the visiting card,” I pointed negotiated the far windowpane, the two syllables, ‘Cathy.’ ” out crossly, wondering what new comes bearing news.” “Again I say, rubbish.” trick of semantical obscurity my The Commissioner’s report was “And so should I, except for friend could possibly have up his terse and to the point. The butler, Marco Polo.” sleeve. Chin, had been apprehended by “Explain yourself, Soames.” “Ah. At first I followed a false the police while attempting to leave “What was the ancient name for scent there. I considered the literal the Chinese diplomatic compound China, used by Marco Polo and his meaning of ‘the child is father to the in an ambulance driven by Embas¬ contemporaries? Surely you know man.’ The ‘child,’ I reasoned, must sy personnel. The latter, owing to that from your reading, Quimby.” logically be our client, Miss Alicia their diplomatic immunity, were re¬ I reflected a moment before re¬ Dodgson, and the ‘father’ would be leased, but the vehicle was searched. plying, “Cathay.” Sir Algernon. But clearly the mean¬ Among its contents were a round- “Capital, Quimby. Cathay! That ing remained nonsensical. So I cast trip air ticket to New York and is what the unfortunate Sir Alger¬ about for another solution. I an impressive array of photostauc non was attempting to tell his cudgeled my brain to think of documents from Chinese archives daughter, though the muddled effort equivalent meanings in the various establishing the fact that Chin was must have cost him dear. And Oriental tongues. What, I asked the legitimate son, by a prior valid what, pray tell, is an even more myself, could ‘man’ possibly signi¬ marriage, of Sir Algernon Dodgson. ancient name for China than fy? Then it occurred to me that “And where is the purloined pass¬ Cathay? You nod your head, so I ‘man’ was really a hasty mis¬ port?” I enquired of Soames as he shall tell you. It is ‘The Kingdom of translation on my part. A cor¬ accompanied me part of the way Chin,’ so called for the ancient dy¬ rect phonetic transliteration of the home to my lodgings. nasty of that name. Chin, Quimby, Chinese ideographs would read “In all probability,” my friend think of it! That brings us back, not ‘man,’ but ‘man’ followed by replied, “it has already been de¬ once more, to our Eurasian butler.” the first vowel sound, that is to say stroyed by Counselor Yuan Shi-kai “Soames,” I responded quizzical¬ ‘mana’ or ‘manna.’ You are, I be¬ of the Chinese Embassy. You must ly, “I confess I find this most unlike¬ lieve, Quimby, well-read an Scrip¬ understand that the butler, poor fel¬ ly, but please go on. I suppose you ture?” low, had no notion that Sir Alger¬ deduce some equally obscure “Of course,” I replied, grasping non was his true father, until ap¬ meaning from the inscription on the the point at once. “ ‘Manna' ap¬ prised of the fact last evening. He calling card.” pears frequently in the Old Testa¬ was then induced to collaborate “Exactly. But the fault was in ment. It is the old Hebrew, or (Continued on page 40)

FOREIGN SERVICE JOURNAL, August, 1969 29 I N the endless torrents of reportage, prose, analysis, and commentary on Vietnam, few writers have ever paused to comment on the beauty of the country. Yet it is still in fact, after countless years of war, a lovely place— perhaps the most beautiful country in Southeast Asia. This is true even in those provinces that have borne the brunt of the war—provinces such as Quang Ngai faces of which stretches along the South China Sea. Since the Viet Minh set up their first secret base area in the mountains of Quang Ngai in 1930, the province has known only intermittent peace. In the thirties, there were demonstrations against the French, followed by mass killings of nationalists after World War II when u\etnam the Viet Minh ruled the province for several years. Unfortunately—for security reasons—Americans tend to see places such as Quang Ngai at high speeds if traveling by plane; or at slightly lower speeds wrapped bty Robert PeLL in a cloud of dust when going by road. In more than four years of travel throughout the country, I learned that the best way to see the country was to attach myself to one of the junior civilians working in the provinces on the pacification or civil development pro¬ grams. They would spend days out in the hamlets and villages talking with local officials, the government cadres, or local farmers. It was then that one could sit and enjoy the variety and color of the rural scene—the lines of men and women ankle-deep in mud transplant¬ ing or harvesting the rice; the bobbing lights of the women headed for market across the paddies in the pre-dawn hours; the children with their notebooks, texts, and inevitable little round pots of ink running through the fields on their way to school; and the extraordinary grace and beauty of the older Vietnamese girls in their “ao dais” walking delicately along the roads under brightly colored parasols and chattering in a sing-song tone that often seemed, to a Western ear trained on heavy consonants and flat vowels to be nearly pure music. This then is the pictorial record of three days spent within Quang Ngai with David Entin, a young civilian worker there with the pacification program in the late summer of 1967. We traveled to hamlets and villages near the coast with their stands of bamboo and beauti¬ ful wooden houses patterned on the Chinese style, and to the valleys deep in the mountains where the sight of a little wooden church built by the French missionaries suddenly transformed Quang Ngai into a corner of the Alpes-Maritimes in southern France. One could not escape the war entirely especially along National Route One, the main north-south route through the province where every bridge had been blown at least once if not three or four times in recent years. But one could still catch the essence of rural Vietnam in Quang Ngai—in its people as well as its countryside. This represents an A young man at the Cao Dai refugee camp makes it clear attempt to record a small portion of this world. that he’s not coming in out of the rain until he’s invited.

30 FOREIGN SERVICE JOURNAL, August, 1969 Village elder at a meet¬ ing, Thanh Lien hamlet. Returning from market, Hung Nhon Bac hamlet.

At a meeting, Thanh Lien hamlet, a little girl with her schoolbooks and ink pot (left hand).

A fisherman plies his net in a little pond along National Highway One.

It a hamlet meeting, a 'Oman of Thanh Lien stens.

Landscape, Quang Ngai province.

Landscape, Ouang Ngai province.

Boys washing cattle in front of a bridge destroyed by the Viet Cong.

FOREIGN SERVICE JOURNAL, August, 1969 An Open Letter to the Director General of the Foreign Service

Toward A Modern Personnel System

Dear Ambassador Burns: —Why, after 10 or 15 years have I not acquired a As you take up the duties of Director General, the Board profound expertise in at least one area or function? of Directors of the American Foreign Service Association —Why, over the last 10 or 15 years have the rules changed extends congratulations on behalf of our 7,800 members. We so often? thought, as well, that you would be interested in our view of —Why is it that a job I legitimately aspired to 10 or 15 what awaits you; hence, we are writing you this open letter. years ago is today held by a very senior officer? —Why should I not leave the service now when my Since you left Washington in 1960, the problems facing the foreign service have become more acute. At the same time, mobility and earning power are at their peak? the need for fundamental reform is now clear to the foreign Senior officers ask: services and to a large and growing body of concerned —Why am I being retired on maximum-time-in-class? Americans. Everyone admits that I have done an excellent job and Whatever a career in foreign affairs was in the past and am capable of continuing excellent performance for whatever it may become in the future, today the foreign another 5 or 10 years. I’m not asking to be an Ambassa¬ services present a distorted image to themselves and to the dor. I’m not even asking to be promoted. nation. —Why, after attaining the highest ranks of the service are Young Americans interested in a career in foreign service we not being used in senior executive positions? ask: —Why should I retire now? If I wait another five years, my —Why should I enter foreign service when better opportu¬ annuity will increase substantially. nities in foreign affairs exist across a broad spectrum of —Is there no premium in foreign service on continuity private and political careers? and wisdom? —If I do choose to enter foreign service, should I acquire a —Why should I recommend to my son or daughter a specialty first—and if so, which? career with the foreign service? —Does the career system treat its members fairly? —Senior AID officers ask: Why are AID foreign service —Are career opportunities better in AID, USIA or with employees not covered by the Foreign Service Retirement the Department of State? Must I make an irrevocable System? choice? Staff Corps members and Civil Servants ask: —Will members of the foreign services be regarded in —Who is looking out for our welfare? years to come as competent and respected professionals? —Are we to have a meaningful and stable career, or must Younger officers ask: we look forward to yet another conversion? —Why after years of preparation on our part and after The unions ask: initial promises by the system, have we been relegated to —Is employment security compatible with a foreign service menial and unsatisfying tasks? career? —Why can’t the system tell us clearly what it expects of us over the long term and show us through assignments, Concerned Americans ask: promotions and training that it is holding to an explicit —Whatever you do to make the career service meaningful goal? for each of its members, will you also make it relevant to —How can we expect things to get better when we see the the rest of society? Must the foreign service remain a mid-career bulge ahead of us and know that it will guild structure, closed and alien to the political and continue to grow unless and until the system solves the social movements in the land and lagging behind the problem of surplus officers? professions with which it should have so much in com¬ —Young AID officers ask: Does it make sense that RIFs mon? strike first at younger, more aggressive and better- Each group poses other difficult questions. But this sam¬ educated elements in the service? pling identifies the profound disquiet. What we need to do Mid-career officers ask: now is to proceed with the solutions. —Why after 10 or 15 years have I yet to hold a job with The Association does not believe that answers to any of our major executive responsibility? problems will be found in a piecemeal approach. The experi-

32 FOREIGN SERVICE JOURNAL, August, 1969 ence of the last quarter of a century shows that each element service requirements. Thus, the FSR-U category should be¬ of the personnel system—recruitment, assignment, promo¬ come a special professional cone, members of which will tion, training, voluntary and involuntary retirement—is so compete among themselves. intimately related to all the others that tinkering with one part The Department NEWS LETTER of December, 1968 sug¬ only aggravates; it does not cure. gests that consideration is being given within the Department But until questions about the fundamental nature of our of State to abolishing the FSSO category, converting those service are answered, we will continue to tinker. who will accept such appointments to the FSO or FSR (un¬ The fundamental questions have not changed since you left limited) categories. The rationale for this proposal is that Washington. And they have not been answered either. They the present ceiling on FSSOs is the equivalent of FSO-3 and, are: perhaps more importantly, that management's inability to —Do we want a unified foreign service? apply the pruning tool of selection-out to the FSSO category —What shall be the mix between specialists and generalists has resulted in the accumulation of substantial deadwood. and how do we achieve it? The Association does not agree. Mixing what are in most —Shall each agency in foreign affairs maintain both a cases technicians with professional level specialists will work foreign service and a home service, or shall we have a to the detriment of the former, as well as to the concept of single personnel system for all employees? professionalization as such. If the principal reason for abolish¬ The Association believes that if we answer these questions ing the FSSO category is to have the managerial advantage of correctly, the remaining subsidiary questions ranging from selection-out, the Association believes the reason should be ex¬ recruitment through retirement can be answered in a coher¬ plicit, not hidden. If, in addition, there are valid arguments ent, satisfying and relevant way. for not mixing the technician with the professional specialist, The Association’s own proposals concerning the nature of the new Administration should consider an amendment to ex¬ the personnel system are well known, but we shall repeat isting legislation which would extend selection-out to the FSSO them here: category; the Association notes that this solution was en¬ • We stand for a unified Foreign Service. visaged in the Hays Bill. In any event, the Association does • For this unified Foreign Service, we ask that the Board not believe that present FSSOs would qualify for appointment of the Foreign Service administer common policies, as FSR (unlimited) officers under the definition given above. standards and services and an executive track across One of the most intractable problems of personnel adminis¬ agency lines and that specialist cones be administered by tration in foreign affairs has been the existence of dual sys¬ each agency. tems: Foreign Service and Civil Service. Despite 20 years of • We believe we need a home service in addition to a study and prescription, there still appears no solution other unified foreign service. than acceptance of the untidiness inherent in administering If these were the fundamental principles of our career, here two systems within the same agency. However, the process is an outline of how subsidiary elements of the personnel of “Wristonization” which has had such beneficial effects system would follow: (despite cases of individual hardship) within the Department of State has scarcely begun within AID and USIA. It should Recruitment and Appointment be a matter of urgent priority for the administrators of those With a unified foreign service and a specialist cone/execu¬ two agencies, under the guidance of the Board of the Foreign tive track system, recruitment should be a joint State-AID- Service. USIA effort aimed at hiring a precise number of individuals to fill actual or projected vacancies in the specialist cones. Assignment—Most employees will spend their careers with¬ The foreign service, in other words, should recuit interna¬ in a specialized cone, taking an extra-cone assignment only tional economists, political specialists, consular officers, ad¬ when it contributes to their professional development. With increasing specialization the rule, tours should be lengthened. ministrative officers, commercial officers, information and cultural officers, development officers and so on. In recruiting Those specialists—regardless of category, such as FSO, FSR (AID), FSIO, FSSO or FSR (Unlimited)—who demon¬ specialists, potential for leadership and growth should be an strate an unusual policy sense or leadership potential may be important consideration. As Alfred North Whitehead said: earmarked for the executive cone at an early stage in their “What we should aim at producing is men who possess both careers. They will be given shorter and more varied tours in a culture and expert knowledge in some special direction. Their variety of positions, in addition to systematic exposure to other expert knowledge will give them the ground to start from.” agency programs and procedures. To the extent that early All initial appointments at the officer level, regardless of executive promise is not fulfilled, such employees may either agency, should be reserve in nature (with the Civil Service be reassigned to a specialized cone or run the risk of early exceptions discussed below). This will afford a true proba¬ retirement. tionary period, permitting the agencies to validate their initial judgment of the employee, before both employee and agency Competition and Promotion—As a general rule, the system enter into a more permanent contract with each other. Be¬ should provide greater security for specialists and greater risk tween the end of the third year, and not later than the end (as well as responsibilities) for those who aspire to executive of the fifth year, the Agency will have to decide whether to positions. terminate the relationship or appoint the employee as an Competition for promotion should be by specialty and sub¬ FSO, FSIO. FSSO or, as is AID’s present practice, an FSR specialty within cones, so that employees with different back¬ with tenure within that agency only. grounds and skills are not required to compete with each This procedure will also permit the agencies in foreign other. The number of promotions in each specialty must be affairs, which are not now competitive in the salaries they linked directly to the number of positions designated for can offer, to make appointments at the FSR-6 or FSR-5 level staffing by that specialty to avoid creating in the future the to attract those with advanced degrees or significant work problems of surplus at certain grades and in certain special¬ experience. ties that have plagued the foreign services in recent years. The Association recommends that appointment to the new Different rates of promotion may apply as between the category of FSR (unlimited) be made only where the skill cones and the executive track; indeed, promotions for most cannot be developed from within or recruited at the bottom officers in the specialist cones may become semi-automatic, and where the need for the skill is continuing (such as ocean¬ subject to the number of positions available at each higher ographers, nuclear specialists, etc.); where the need is not grade. In this context, selection boards would consider only continuing, a five-year FSR appointment should meet most those who appear to merit unusually rapid promotions (or late

JS'OREIGN SERVICE JOURNAL, August, 196!) 33 assignment to the executive cone) or those whose performance Lateral Entry and Exit—If the foreign service is to dis¬ is sub-standard. The Foreign Service will require a growing charge its responsibilities in the future, it will have to be more variety of officers; while all should enjoy the same salary scale hospitable to the introduction of new skills from the outside and benefits, it makes sense that promotion and assignment than it has been in the past. The Association believes that policies should be tailored to fit the wearer. explicit recognition of the value of specialization within the Rigorous selection-out and reduced time-in-class provisions service will reduce present hostility to new ideas and tech¬ should apply to all officers in the executive cone; while selec- niques proffered from outside the service. tion-out for substandard performance should apply to spe¬ By the same token, the agencies in foreign affairs must cialists, time-in-class restrictions should be relaxed and, per¬ make active use of opportunities for internships, details and haps, varied according to shortage or surplus categories in assignments of personnel to business, universities, foundations each cone. and other government agencies. The gap which has developed The system of performance evaluation, in particular, re¬ between the foreign affairs professional on active duty and quires modernization. In an increasingly variegated service, his colleagues elsewhere in American society must be closed. the criteria by which performance is measured require greater differentiation so that general services officers are not—as is Action Required now the case—rated against the same factors as economists, or economists as political analysts. The services, in short, The United States Information Agency should, where need a much finer sense of what performance criteria are appropriate and necessary, follow the recommendations out¬ relevant to the promotion process; of particular importance is lined above. In particular, it should step up development the development of methods for spotting officers who should of a computer model and position/skill inventories compat¬ be assigned to the executive track. ible with the Department's. The services also need to build more open and honest The Agency for International Development—As a matter supervisor-employer relationships, and should draw heavily of principle all the reforms proposed by the Association can on new techniques developed and used so extensively by be instituted without any new statutory authority. The progressive private institutions. The brief experiments in this Agency for International Development is the one place direction begun in 1964-65 produced useful results—not where amendments to existing legislation would greatly facil¬ least of which has been the intellectual and professional self¬ itate full integration into a unified Foreign Service of the questioning underlying this and other papers by the Associa¬ United States, and the Association strongly supports the tion. efforts of the Administration to secure such legislation in Training—The Association notes that 12 percent of the the current Congressional session. military services are in long-term training each year. In the At the present time foreign service employees of AID Department of State, less than four percent of officer em¬ serve as reserve officers; have, for the most part, unlimited ployees are in long-term, non-language training; the figures tenure; are subject to selection-out—in short, are like most for AID and USIA do not approach even this minimum. The other foreign service employees. They are not, however, most important limitation on increases in this percentage participants in the Foreign Service Retirement System, but appears to be the willingness of the three agencies to recon¬ rather in the Civil Service System. This has practical, as sider personnel priorities to favor training and other “man- well as psychological disadvantages both for the employees in-motion” opportunities at the expense of marginal or even and for the Agency. AID personnel whose foreign service redundant positions at home and abroad which must now is confined to the less developed countries, keenly feel that have first call on personnel (this problem is further discussed their conditions of service should be identical to those of below). other agencies and they regard inclusion in the Foreign The agencies in foreign affairs must establish sound, de¬ Service Retirement System not only as a desirable material manding training programs for each of the professional spe¬ benefit, but as formal recognition that their work is an in¬ cialties. They must encourage employees to participate in tegral nart of US diplomacy. The Association concurs in advanced-degree programs, publication of articles and books, •this judgment. participation in professional societies and other activities It also shares the known concern of successive Adminis¬ which will contribute to the reservoir of skills—and growing trators that the Agency’s personnel is aging faster than that public recognition of and confidence in those skills—in for¬ of the other services. Under the present system, retirement eign service. for AID personnel is both delayed and delayable. This has resulted in a situation in which the median age of AID officers, for example, is 44.0 years, as against 39.5 for FSOs and 36.5 years for FSIOs. While AID has had no difficulty in recruiting excellent young officers, it has recently experienced great difficulty in retaining them because of their vulnerability during times of personnel retrenchment. A system which would encourage earlier retirement, particularly if used in conjunction with a genuine effort at “Wristonization,” would be the single most important measure to assure the assistance program of a healthy and vital personnel structure. The Association be¬ lieves that the Administration's proposal for a minor amend¬ ment to existing legislation, coupled with the Department of State and the United States Information Agency, under policies and standards set by the Board of the Foreign Serv¬ ice, should be followed by the formal establishment of a new personnel category (Foreign Service Development Officer), which would be administered under the identical rules gov¬ erning personnel of the other agencies, and in conformance with the principles outlined above for the unified Foreign Service of the United States. (Continued on page 48)

34 FOREIGN SERVICE JOURNAL, August, 1969 nary direct benefits to a generation of scholars around the world and in¬ direct cultural cross-fertilization of a kind impossible to measure. They ex¬ plain his vanguard role in exposing the demagoguery of Senator Joseph McCarthy. The authors record also the numer¬ ous frustrations and disappointments which have attended the Senator’s career: his altercations with President Truman, his investigations into the Kissinger’s Latest sometimes at the expense of longer- Reconstruction Finance Corporation, term considerations. In internal dis¬ his largely forgotten abortive proposal T"HE book consists of three articles cussions, American negotiators— in 1952 to create “a commission of written by Henry Kissinger before he generally irrespective of their previous eminent citizens to consider the prob¬ joined the Nixon Administration. commitments—often become advo¬ lem of ethical conduct of public af¬ Most of our readers will be familiar cates for the maximum range of con¬ fairs,” his participation in the Steven¬ with “The Vietnam Negotiations” cessions; their legal background son Campaign of 1952, and the very which appeared in the January, 1969 tempts them to act as mediators be¬ controversial developments during the issue of FOREIGN AFFAIRS. tween Washington and the country last few years relating to the Bay of That article was seminal and with which they are negotiating.” Pigs fiasco (which Senator Fulbright deserved to be recorded between hard Or, among many others, this epi¬ believed cast a long and ominous covers. It introduced the two-track gram: “Absolute security for one shadow over the 1960s), the Domini¬ approach to the negotiations on Viet¬ country means absolute insecurity for can Republic Crisis, and the war in nam (US/DRV on withdrawals, all others; it can be achieved only by Vietnam. GVN/NLF on political settlement) reducing other states to impotence. Johnson and Gwertzman relate in which has logic on its side although it Thus an essentially defensive foreign some detail the growing despair felt hasn’t yet found acceptance by the policy can grow indistinguishable from by Senator Fulbright regarding the enemy. traditional aggression.” There is much directions taken by United States for¬ The same article contains the most food for thought in these and similar eign policy through 1965. Unsuccess¬ lucid exposition so far of the difficul¬ observations that are tossed off in ful in his attempts to influence policy ties of a cease-fire or a coalition gov¬ sometimes dazzling succession. behind the scenes, and with a deep and ernment in Vietnam. By clarifying —M. F. H. abiding faith in the power of educa¬ some thoughts which had been fuzzy AMERICAN FOREIGN POLICY, Three Essays tion, he turned to the public early in in many people’s minds, Kissinger b\ Henry A. Kissinger. W. W. Norton & 1966. The authors construe “the Viet¬ here set realistic limits to American Co. $3.95. nam hearings” as having had a pow¬ policy. Portrait of Fulbright erful influence. With them, the ranks The essay “Central Issues of Ameri¬ and weight of the “dissenters” were can Foreign Policy,” which is of less SENATOR FULBRIGHT’S record in the multiplied, and the road was paved fundamental importance, is taken Senate since 1945 has been a very from the book “Agenda for the Na¬ important strand in the history of for the McCarthy phenomenon of tion” (ed. Kermit Gordon, Brookings United States foreign policy since 1968. Institution). That larger book, con¬ World War II. Johnson and Gwertz- This is inevitably an incomplete taining 18 contributions, some of man have drawn a life-size portrait biography. Senator Fulbright’s recent which are of equivalent value to Kiss¬ in this biography of the man and his contributions to history are too con¬ inger’s, costs only $6.95 and should be impact. Their chronicle of his tri¬ temporary to evaluate with clarity and bought in preference to “American umphs and defeats is strikingly ob¬ objectivity. But they have certainly Foreign Policy” by anyone who wishes jective, especially considering the been profound. And doubtless we to read Kissinger’s more discursive storm center in which he has moved shall feel further evidence of the views on the central issues. for so long and the intensity with influence of J. William Fulbright dur¬ That leaves one essay, “Domestic which most of his admirers and de¬ ing the years to come. Structure and Foreign Policy,” which tractors tend to describe him. Their —JOHN J. HARTER FULBRIGHT, THE DISSENTER, by Hanes had appeared in DAEDALUS and is per¬ objectivity is nowhere more evident Johnson and Bernard M. Gwertzman. haps the contribution most revealing than in their attempt to place into Doubleday, $9.99. of the author. It is a fascinating essay, perspective his civil rights voting rec¬ of uneven quality, with some brilliant ord. “The Most Absolute of All Deaths" sunbursts of insight—and a few The authors recount in detail the fizzles. well-known victories. They recall the Is the ultimate aim of civiliation the Example of an epigram that fizzled: drama which attended the passage of elimination of the natural—“the de¬ “The dilemma of modern bureaucracy the Fulbright Resolution of 1943 struction of everything which does not is that while every creative act is (pressed by the newly-elected 37-year- serve the primary needs of an explod¬ lonely not every lonely act is creative.” old Congressman) “favoring the cre¬ ing population?” The evidence com¬ (Why is this a dilemma?) ation of appropriate international piled here from the files of the Sur¬ Example of an insight which some machinery with power adequate to vival Service Commission of the Inter¬ of us may wish to re-read in con¬ prevent future aggression and to main¬ national Union for the Conservation nection with the Paris negotiations: tain lasting peace.” They tell the of Nature is a convincing indictment. ‘‘Confidence in the bargaining process story of the Fulbright Act of 1946 Through natural causes (over¬ causes American negotiators to be which established educational ex¬ specialization, climatic changes, etc.), extremely sensitive to the tactical re¬ change programs, multiplied over the hunting (by man), the introduction of quirements of the conference table— years, which have brought extraordi¬ predators and competing species (by

FOREIGN SERVICE JOURNAL, August. 7flff9 35 man), and destruction and dis¬ is promised. As the TIMES’S roving part in the evolution of the post-war turbance of habitat (by man), some correspondent, he has been every¬ world. As an outstanding international thirty-six mammalian species and six¬ where and met everybody. There are lawyer, he turns a cool, analytical and ty-four races of surviving species have many fascinating glimpses in these dispassionate mind on what he sees. become extinct since 1600—the ap¬ uninhibited, unexpurgated jottings. There is little new and nothing sensa¬ proximate beginning of civilization’s The trouble is he reproduces the trivi¬ tional in this book, but a great deal of attack on nature. Again of the mam¬ al along with the memorable. The objective wisdom. mals, 120 species and 223 races are book would be much better if it were He sees the original purpose of now in danger. The extinctions, and half as long. NATO as not to prevent an imminent the danger of new ones, are more Because Mr. Sulzberger was and is or threatened Soviet armed attack but numerous in the case of bird species. constantly on the move, it is full of rather to enable Western Europe to Each of the major endangered life half-told tales. One example: offset, morally and physically, the sud¬ forms from the “Red Book” (for dan¬ LONDON, March 30, 1946— denly overwhelming presence of the ger) of the S.S.C. is covered in a short King George of Greece told me USSR. Despite the vigorous moral and readable essay. The two hundred he was convinced the elections and economic recovery which the Al¬ or so essays are accompanied by a tomorrow would show the great liance has made possible, the predomi¬ number of superb color plates and line majority supports him . . . nance of the USSR over Western Eu¬ drawings—worth the cost of admission How did the elections come out? He rope remains and, in military terms, is all by themselves. doesn’t say; perhaps he assumes every¬ now even greater. The Alliance is as Apart from the morality of man’s body will remember. His next entry, essential as ever. extermination of other species, and the dated April 15, is devoted to a “long As to the future he states: “Unless debate has developed on both sides in conversation” with Ambassador a valid concept of interdependence recent years, the book is a fascinating Winant. and a consciousness of our common glimpse of the richness and diversity This lack of organization and fol¬ interests in peacetime, as well as in of life on this planet. Some are exotic low-through is exasperating. Perhaps war, remains uppermost in the minds —the Thylacine (carnivorous marsupi¬ the best way to approach the book is of people on both sides of the Atlantic, al), the Rusty Numbat (marsupial through the index. It takes up 30 we have only the prospect of going anteater), the Aye-Aye (the rarest pages, and runs from “Abdul Aziz Ibn about our separate ways and, if we primate; sole representative of a race, Abdur Rahman A1 Feisal A1 Saud, see do, praying that history may not re¬ a species, a genus and a family), the Ibn Saud, King,” to “Zujuvic, peat itself . . . The imperative is now Monkey-Eating Eagle—and some are Mladen.” By looking up the topics and to concentrate on our basic common old friends out of the past, like the personalities that interest you, you can interests and collectively get about the Bison. piece together some sort of continui¬ business of advancing them.” There are two species of Bison, the ty. But should the reader be expected THEODORE C. ACHILLES European Wisent and the American to do the diarist’s job for him? THE ATLANTIC ALLIANCE; Its Origin and Bison. Of the two subspecies of the Senior Foreign Service officers its Future, by John J. McCloy. Distrib¬ Wisent, the Caucasian (or mountain) should proceed with caution. Mr. uted by the Columbia University Press Bison is extinct and there are about Sulzberger’s appraisals are sometimes for Carnegie-Mellon University. 860 of the typical race, mostly in corrosive. He dismisses one American Poland and the Soviet Union. Of the diplomat as “a conventional stuffed Inside A Dozen Cities two surviving races of the American shirt,” describes another as “not very Bison, the familiar Plains Bison of the AT LAST John Gunther has provided impressive: nice, clean-cut and youth¬ us another Inside, but not on Aus¬ Old West is now relatively plentiful, ful, but rather a boy scout.” He is but until 1957 the larger, darker tralia—as many might have expected. prone to these hit-and-run vignettes. Instead the reader is whisked In¬ Woods Bison was thought to have But he can do a full-length portrait, in vanished. In that year, some 200 of side 12 cities—eight in Europe (Lon¬ vitriol, when he has a mind to it. Clare don, Paris, Brussels, Rome, Hamburg, the Woods Bison were discovered Boothe Luce gets six pages. through aerial reconnaissance in an Vienna, Warsaw, and Moscow), three It’s hard to know where to put in a tiny Mideast triangle (Jerusalem, isolated valley in southern Canada and these memoirs. Not, certainly, along¬ placed under careful management. Beirut, and Amman), and Tokyo. side Vincent Sheean’s “Personal His¬ Why these 12? Gunther doesn’t say. There are four pages on the Bison; tory” and Eric Sevareid’s “Not So you are then an expert. They are not the Top Twelve, nor are Wild a Dream.” Maybe on the refer¬ they representative of major regions. In addition to the mammals and ence shelf. His book is a huge tureen Could it be that some of these cities birds, there are shorter chapters on of watery stew: there is a good deal happen to be the same ones written the reptiles, amphibians, fish and of meat, but it takes a lot of ladling to about by Gunther in his articles in plants. The book is well-indexed, and find it. READER’S DIGEST and HARPERS? is likely to become the standard work —T.O. “London, the king city of them all” in its field in very short order. The A LONG Row OF CANDLES: MEMOIRS AND leads off the newest Guntherian odys¬ tone is not moralistic; it is an excellent DIARIES (1934-1954), by C. L. Sulz¬ sey. Tokyo ends it—a city that “is on berger. Macmillan, $12.50. and objective encyclopedia of endan¬ the make, on the go—confident, prac¬ gered species written by the experts. NATO, Yesterday, Today tical, fantastically busy, and success¬ —DALE BARNES and Tomorrow ful.” WILDLIFE IN DANGER, by James Fisher, Noel Simon, Jack Vincent and others. True to his Inside formula, Gun¬ Viking Press, $12.95. f EW men have the perspective of ther relies heavily on people to tell lohn J. McCloy. Truly an “elder the story of places. Here we have Mr. Sulzberger’s Diaries statesman,” he has been the adviser mayors, taxi drivers, generals, waiters, and confidant of every American a king, young people. He also shares CY SULZBERGER’S “memoirs & di¬ President and most of the leaders of the political jokes heard in Moscow; aries” take 1,026 pages to cover two Western Europe since World War II. one: decades, 1934-54, and another volume As such he has played a significant “How is Germany divided?” asks

36 FOREIGN SERVICE JOURNAL, August, 1969 a questioner. Reply: “East Germany (like Oscar Lewis’ studies of individu¬ tin-roofed boxes to sturdy cinder- has the Communist Manifesto, West al families) or a cosmic one (philo¬ block cottages to minor commercial Germany has Das Kapital.” sophically, like Regis Debray) or sta¬ districts in a democratic mode, or will Although this book may be a slight tistically, like various national develop¬ instead provide support to a modern disappointment, the reader can still ment plans, citing a host of alarming caudillo like Castro or Peron, will enjoy comparing his opinion of the country-wide figures on levels of lit¬ depend on how well the aspiring class cities with Gunther’s or simply in¬ eracy, etc. Ray has unique experience can be accommodated politically. dulging in armchair travel. And if to synthesize the two approaches. Af¬ —THEODORE S. WILKINSON these cities don’t satisfy, we may as¬ ter a year helping slum residents in THE POLITICS OF THE BARRIOS OF VENE¬ Ciudad Guayana on the Orinoco mo¬ ZUELA, by Talton F. Ray. University of sume we’ll get inside Copenhagen, California, $7.00. Rio, and Prague sooner or later. bilize their resources for community —JAMES O. MAYS improvement, he was promoted by Peace Corps Scrapbook TWELVE CITIES, by John Gunther. Har¬ ACCION director Blatchford (now per & Row, $6.95. Director of the Peace Corps) to su¬ OVER 350 photographs of Peace Neutralization and World Politics pervise field work throughout the Corps activities and a sampling of country for another 18 months. After self-analysis by volunteers of their T HIS tidy little volume outlines leaving Venezuela, he supplemented effectiveness on the job are combined some of the principal issues surround¬ his extensive direct experience with ing the idea of neutralization in long research. Combining these assets, terms of current international prob¬ he arrives at thorough answers for the lems. Perhaps the most interesting eclipse of the left and the relative portions are discussions of neutraliza¬ success of the moderates in the bar¬ tion in specific areas (Germany, Viet¬ rios. nam, the Gaza Strip), and the analy¬ Themselves of middle-class origin, ses of the difficulties in negotiating the most ardent advocates of an insur¬ and maintaining neutralized status. gency presumed the rag proletariat to The book is well grounded in fact and be equally indignant about its own worth reading. squalor and to be far more ripe for —JOHN D. STEMPEL revolution than it was. They failed, NEUTRALIZATION AND WORLD POLITICS, moreover, to make a convincing case by Cyril E. Black, Richard A. Falk, against the government, or to present Klaus Knorr, and Oran R. Young. Prince¬ ton University Press, Cloth: $7.50, paper: an appealing alternative. When the far $1.95. left turned to concerted urban terror¬ ism in the early 1960s, in fact, they The Barrios of Venezuela instilled more fear and disgust than revolutionary zeal in most barrio res¬ REVISITING residents of a Havana idents. The slums provided a full share slum in the early 60s after a long of political martyrs, in the form of hiatus, Oscar Lewis wrote that they policemen shot down wantonly in the displayed new purpose and vitality; he streets in an attempt by the left to attributed this to a sense of political make the government appear incapa¬ participation conveyed to them by ble of maintaining order. Castro. If Castro could capture the imagination of the urban downtrod¬ Finally, the national government den in Cuba, why is it that Domingo held the reins of control on most of Alberto Rangel, Fabrico Ojeda, the the facilitative services which barrio guerrilla Douglas Bravo, or another of residents could hope to benefit from. the flamboyant leaders of the revolu¬ Though the AD’s efforts to woo the tionary left, was not similarly able to barrios with largesse were so partisan create a political cadre in the teeming that the party alienated as many new shanty towns which had grown to ring voters as it hoped to gain, its efforts Caracas and other major cities by the were energetic enough and sincere time the military dictator Perez enough to choke off revolt. Jimenez was overthrown? Why instead Talton Ray’s prognosis is hedged. did the communists and Jacobins who Growth projections ensure that Vene¬ after 1958 controlled many of the zuela’s city slums will continue to country’s urban barrios steadily lose insult the eyes for years to come, but ground to the constitutionalist parties, at present, the great majority of bar¬ —in particular to the populist Accion rio residents retain the healthy convic¬ Democratica, the backbone of the tion (certainly a surprising one in governing coalition in the transitional their case) that there is equality of years 1959-1969? opportunity. There is little to support Talton Ray’s attempt to answer the thesis of Frantz Fanon that the such questions is not the first study of people of the shanty towns are poten¬ the political mechanics of Latin tially the urban spearhead of revolu¬ America’s city slums, as his own am¬ tion. On the other hand, the aspiring ple bibliography attests, but the prob¬ sector of the barrios is growing, and lem is dealt with in an ambitious there are relatively few outlets for it manner heretofore attempted by few. in the Venezuelan polity. Whether the Others have usually attacked the barrios as a whole will continue to problem from an organic standpoint evolve (as some already have) from

FORBIGN SERVICE JOURNAL, Annual, 1969 37 in this first-rate scrapbook of the history. As a result, the novice gains AUTHORIZED EXPORTER Peace Corps experience. The excellent very little information, while the photographs themselves are worth the former traveler has a chance to spot price of admission, and the reader the places he has been to. We can just GENERAL ELECTRIC who has himself served overseas will hear him: “Why, there’s the church undoubtedly find many shots which where we fed the pigeons” or “there’s trigger a flood of memories. Neither the street where the beggar wanted to the text nor the photographs avoid the shine my shoes for two dinars” etc. Refrigerators • Freezers • Ranges problems and shortcomings of the Maclean’s opus, like its predecessors, Washers • Dryers • Air Conditioners Peace Corps, and we even have a suffers from an overdose of black- picture of the infamous postcard and-white. Only six out of 205 photo Dishwashers • Radios • Phonos mailed from Nigeria in which PCV plates are in color, for a subject made Margery Michelmore described her for color film. As a result what is Small Appliances first shock at learning what “underde¬ scenically dramatic, or architecturally veloped” meant in practical terms. It romantic, or artistically exquisite has Available for All Electric Currents is against the backdrop of doubt at the a stark and foreboding look. It is a inception of the Peace Corps and the mistake that no editor of the NATION¬ Local Warehousing for Immediate continuing self-doubt of Ihe volunteers AL GEOGRAPHIC MAGAZINE, or of HOL¬ Shipment themselves that the success of this IDAY, or VENTURE would have made; noble experience shows up the more nor, for that matter, any adman turn¬ sharply. This record of the Peace ing out the flood of travel literature Corps in action is not only a lively bit about Yugoslavia. General Electronics, Inc. of history for the general reader, but a —CARL CHARLICK very worthwhile addition to the li¬ YUGOSLAVIA, by Sir Fitzroy MacLean. brary of any American who serves his Viking, $12.50. SHOWROOM: 4513 Wisconsin Ave., country overseas. Problem Solving Washington, D. C. 20016 EMerson 2- —ARCHIE BOLSTER A s an intellectual exercise, Dr. 8300 THE PEACE CORPS EXPERIENCE, edited Ramo presents a very rational ap¬ by Roy Hoopes. Potter, $6.95. WRITE FOR CATALOG. Our catalog is proach for determining what a prob¬ lem is or how to solve a recognized sent to administrative officers of em¬ On Yugoslavia problem. The author’s approach, bassies and consulates throughout T" HE least that can be said about this called the “Systems Approach,” is a the world. elaborate pictorial volume is that it is technique for organizing scientific and in good company. Picture books on technological tools to attack complex Yugoslavia have been coming along problems, objectively and logically. for the past two decades. In 1951, O. The “Systems Approach” becomes it¬ Bihalj-Merin and the editors of the self a tool for defining goals or consti¬ tuting the harmonious and optimum Yugoslav cultural magazine JUGOSLA- organization of resources. Among the How fast VIJA brought out a special issue in modern techniques involved in this should you expect a English. In 1959, the noted Yugoslav historian Cvito Fiskovich produced approach is “computer-assisted data $5,000 to $50,000 one for German readers. Anton Ilic handling and prediction analysis.” next turned one out through the The author is well qualified to portfolio to grow Swiss-French publishers Ides and present a systems approach. Dr. Ramo under investment Calendes, in French. The pattern is has contributed substantially to the similar: a rough geographic sequence successful development of a large, management? beginning with the sub-Alpine gran¬ multimillion dollar, defense related deur of Slovenia and gravitating to the corporation (TRW, Inc.) and has had Whether you are investing in common stocks Adriatic littoral and Dalmatia, those considerable experience applying this for retirement income, children’s education true Elysian fields of scenic photog¬ technique to the hardware require¬ or freedom from financial worry, you want ments of the military. your money to grow as rapidly as possible. raphy, then striking haphazardly into Yet, perhaps for reasons beyond your con¬ the country's interior. An attempt is In this literary effort, Dr. Ramo trol, you may find your capital is not build¬ made at some balance, by interspers¬ suggests the desirability of applying ing up as fast as you expect it to. ing the same shots of peasant girls the systems’ experience to cure social To help solve this very problem, investors swirling in billows of snowy home- problems. As a technique for analysis in more than 55 countries use The Danforth spun, or those cutlass-throwing skhipe- and evaluation, the systems approach Associates Investment Management Plan. tars, or a gnarled mountaineer with has great promise. However, unlike The professional supervision it offers can, we believe, work to balance the risks of flintlock and lather-thronged opanke, the hardware requirements of de¬ common stock investments and help you here and there a huddled peasant cot¬ fense, the method the author outlines better achieve your capital growth goals. tage, then some skyscrapers or even a for solving social ills is step three in a Find out how you may begin benefiting blast furnace, to pinpoint the coun¬ three stage process where the first two from this tested plan with as little as $5,000 try’s industrial upsurge; finally a touch steps have not been taken. in cash or securities. For a free copy of our of the Byzantine heritage, with ikons Prior to selecting a method to 42-page descriptive booklet, including a complete 10-year “performance record,” of martyrs and stylized saints mourn¬ define or analyze a problem, there simply write Dept. FS-8. fully peering from mosaics. The text, must be decision and authority (com¬ some of it in an over-compressed in¬ mitment) to undertake a task. Second¬ THE DANFORTH ASSOCIATES troduction, the rest in an inconve¬ ly, there must be sufficient resources WELLESLEY HILLS, MASS., U.S.A. OH8I niently placed after-section, manfully (namely, cash) available to use a Investment Management . Incorporated 1936 but vainly tries to sketch the infinite given method. Very often the social variety of the country’s tradition and problems which confront our society

38 FOREIGN SERVICE JOURNAL, August, 1969 the type of problems which voice of the United States were com¬ basic unit of world society, and legis¬ i nselves to commitment or for mitted to the League in the last of the lation is confined to national jurisdic¬ \ lere are sufficient resources Fourteen Points. The rest is chronolo¬ tions. Such law as is made among the a . All too frequently our social gy. The United States never became a nations is the law of treaties. Whether p. , must be confronted by de- member of the League, and, by the the functioning of international parlia¬ ce. ed decision-making organs, late thirties, as Europe—and the mentary bodies in the range between po; g inadequate authority and world—was hurtling towards another forums of discussion and useful cat¬ plag with jurisdictional limitations, major paroxysm of insanity, the Palais alysts of political progress is any conflic lg political and economic in¬ des Nations was not on the itinerary evidence of their potential as active terests and grossly inadequate finan¬ of the men who were actively impli¬ elements of future systems of interna¬ cial sources. cated in bringing about or trying to tional organization, is open to discus¬ If there were a commitment, a real prevent the plunge into madness. sion. determination to identify and solve Twenty years ago, the United Na¬ Hovey’s book is concerned with our social problems, and if adequate tions Organization took over from the NATO, that most successful regional funds were available, Dr. Ramo’s League. In a world where so much of alliance of the post-war period, and “systems approach” could only be de¬ the recent disaster was being blamed specifically with four of the six inter scribed as spiffy. However, until there on nationalistic excesses of individual national parliamentary consultative is a change in current attitudes and states, on immoral arrangements of assemblies of the Atlantic area. He “realities,” his approach is irrelevant. spheres of influence and balance of deals with the prospects for the de¬ —C. A. KENNEDY power, on the substitution of ra¬ velopment of an Atlantic Assembly, CURE FOR CHAOS, by Simon Ramo, Ph.D. pacious bilateral agreements for re¬ consultative in nature, but with offi¬ McKay, $3.95. sponsible good-neighbor policies, in a cially recognized competence in all world once again tired and ever hope¬ matters of common concern. The an¬ International Communication ful, regional associations became the alysis of achievements and problems dominant trend in international pol¬ of the NATO parliamentary bodies HISTORY has not yet passed the itics. The tempering pressures of the provides both reason for hope and final verdict on that ambitious ex¬ cold war supplied the proving trials ground for skepticism. It all depends periment between the two world and modifying impulses to some of on where you stand with respect to wars, the League of Nations. In 1920, these pacts; others have clung to a superparliaments in general. Europe sought new hope for the reputation for viability by disguising world which had just been made safe atrophy with what passes for harmless —ANDREW T. FALKIEWICZ for democracy in the concerted be¬ petrification. International communi¬ THE SUPERPARLIAMENTS: Interparlia¬ nevolence and vague authority of a cation, vastly improved, is pointing mentary Consultation and Atlantic Co¬ supranational congregation. The the way to international understand¬ operation, by J. Allan Hovey, Jr. emerging international power and ing. Still, the nation-state remains the Praeger, $10.00.

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FOREIGN SERVICE JOURNAL, August, i960 39 PURLOINED PASSPORT {Continued from page 29) with Chinese diplomatic represent¬ atives in an attempt to claim the American fortune of Miss Alicia Dodgson. Under the terms of her mother’s will, which I inspected at the solicitors’ this afternoon, the bequest passes in equal part to ‘other legitimate children of Sir Al¬ gernon Dodgson’ if not claimed promptly by the eldest daughter on her twenty-first birthday.” “Good Lord, Soames. What an eccentric will! But at least Miss Alicia may now rightfully claim her inheritance in New York on the day after tomorrow.” “The will is not, perhaps, my dear Quimby, so eccentric as you suppose. And the latter point you mention is yet to be decided. But I confess I am quite exhausted and Good as his word, I received a “Oh, Mr. Soames, you have been look forward to a sound slumber. summons next morning to attend so good to Papa and me. The doc¬ Nature must claim her ‘rightful my colleague at his vice-consular tors, aided by your diagnosis, are portion of diurnal rest,’ as the poet offices. When I entered Soames’ now able to promise a speedy says. I apprehend a most interest¬ room, a minute or two late for the recovery. My plans for a quick trip ing interview tomorrow morning appointment, a happy tableau was to New York by the late afternoon with Miss Alicia Dodgson, and set before me. Our pretty interlocu¬ plane are nearly complete, and I shall not,” Soames chuckled, “de¬ tor of the day before, dressed in a shall return in two days’ time with prive you of the pleasure of sitting fetching traveling outfit, was ex¬ my fortune. Here!” With impulsive in at the conclusion of the case.” pressing a profusion of thanks. gesture, she drew a ruby signet ring

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40 FOREIGN SERVICE JOURNAL, August, 1009 out of her pocketbook and made as “What you say is true. Though “What the devil has that to do if to present it to my friend. “Take my old passport remains missing, with the visa?” I inquired in a testy this small token, in appreciation for the authorities, in view of the cir¬ voice. your help.” cumstances, have agreed to issue “Only this, my dear Quimby. But Soames, it appeared, was in me a new passport. I shall call Our Government faces the most a brown study. He remained upon you at two o’clock, if that is serious economic difficulties just seated, a serious frown contorting most convenient, so that an Ameri¬ now, owing to a drain on American his features. “As a consular official can visa may be granted in time for gold and money reserves, common¬ of the United States,” he said in the four o’clock flight to New ly called in the popular press, a hard, even tones, “I regret that I am York.” ‘balance-of-payments crisis.’ Miss specifically prohibited by Govern¬ My colleague looked up mis¬ Dodgson, here, proposes to travel ment regulations from accepting chievously at our smiling guest. “1 to the United States. The purpose of your gift.” greatly regret, Miss Dodgson,” he her visit is to claim and receive, “But, surely . . said, “that I shall be unable to issue tomorrow, many millions of Ameri¬ “Sit down, Miss Dodgson. I must you that visa.” can dollars, which she will then warn you that any further offer on “What?” I cried in unison with transport out of the country. In your part can only be interpreted our attractive client, whose face short, she proposes to cause untold as an attempted bribe.” was now frozen in disbelief. damage to the United States Treas¬ The young woman took her seat But Soames went on, explaining ury and the well being of our citi¬ after many remonstrances, and the position with firm calmness. “1 zens. In the midst of the present fi¬ Soames commenced once more in have looked closely into the matter nancial crisis, Miss, I very much his aseptic official’s voice. “The po¬ of your mother’s bequest,” he be¬ fear that your inheritance of these lice, I feel sure, have already ac¬ gan. “I can now report, on the millions of dollars is not in accord quainted you with the dramatic basis of a cable received from one with the national interests of the denouement of my investigations of the leading banks of New York United States Government, which I on your behalf. You have come this City only this morning, that the represent. I assure you that in my morning, therefore, not only to ex¬ fortune at stake has grown, aided capacity as American Vice-Consul press thanks to myself and my by wise investments over the years, I possess adequate legal authority friend, Mr. Quimby, but also no into an enormous sum. The amount to deny you permission to enter my doubt to reapply for a visa to the runs into nine digits, that is to say, country.” United States.” into many millions of dollars.” “But, Sir! This is grossly unfair!”

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FOREIGN SERVICE JOURNAL, August, 1969 41 Soames’ eyes flickered with a have noticed, Miss Dodgson, that “The millions of dollars which malice I had not noticed before, you are a rather spoiled young lady. you forfeit,” Soames continued, and he gave a wan half-smile. This is hardly unnatural, since you “will pass to the State of New “There are also good technical are the only daughter of a doting, York, to be spent for the welfare grounds for me to deny you a widowed father. You have received and social betterment of the good visa,” he went on. “You now know from Sir Algernon all or most of people of that State. The new that your father married a Chinese the good things in life that money schools and health clinics that can woman at Hangchow some forty can buy; expensive clothes and jew¬ be built with your mother’s money years ago, who bore him a son. els, a comfortable home, the best should also enable the State to re¬ There is reason to believe that education. And how have you cho¬ duce the heavy tax burden now Chin’s mother is still alive, which sen to repay society for these gifts? falling upon its citizens. In short, would mean that you, Miss, are the Do you perform useful work? No. Miss Dodgson, your inheritance, in¬ product of a bigamous marriage, You sit at home and read novels.” stead of imposing a burden on the and hence you were born an illegi¬ Our client, upon hearing this US Treasury, can now be used to timate child. Until these complex speech, affected to be struck dumb, increase the health and happiness of legal points have been carefully in¬ and now listened in absolute untold numbers of my fellow- vestigated, I am bound to question silence. citizens.” the validity of your documenta¬ “As you will know from the po¬ Receiving a nod from my friend, tion.” lice, Chin, your half-brother, is be¬ I rose and proceeded to escort the “No!” shrieked our pretty guest, ing held in custody and is likely to young lady out of his office. As we whom I was constrained to calm remain so for some time. I have reached the door I heard him say, with a glass of water and an aspirin learned from your family solicitors “Good day to you, Miss. If you that the entire bequest of your tablet. could possibly spare me a minute, mother, if neither you nor Chin is Quimby, when you have disposed Relentless, Soames ignored this able to claim it by midnight tomor¬ of our visitor, I should value your little outburst. “It is necessary to row, will go to a third party.” advice on a small matter involving my job as an American Vice- “Who?” rasped the young lady, a forged passport, a German shep¬ Consul,” he proceeded, “to develop clutching at her handkerchief. herd dog and two missing Bulgari¬ some insight into human nature. I “Who can it be .. . ?” an clergymen. . .” ■

42 FOREIGN SERVICE JOURNAL, August, 1969 (Continued from page 13) panned out. And all who have been in turn their intellectual curiosity to we—or others in the international sys¬ policy making have also experienced questions bedeviling decision-makers. tem—might take. It requires predict¬ the disappointment of not obtaining But they should not expect scholars to ing with some accuracy the action the results we had hoped for from forego their main concern nor to outcomes of such steps, what in fact is specific actions on the part of the US come up with quick and easy advice likely to occur in action. To weigh the Government. on request. They must have enough relevance of this, however, we then Conclusion. It is therefore in that perspective on the flow of events they need to speculate on the value out¬ realm where one is neither brash nor are so caught up in to be able to ask comes. Will we like or decry these timid, neither certain one has the an¬ the long trend, more fundamental predicted results? This is a different swer nor despairing of ever discover¬ questions far enough ahead to give kind of intellectual activity than we ing something adequate to the situa¬ reasonable chance of at least a serious engage in when we reconstruct a po¬ tion, while knowing that some situa¬ search for answers to be conducted in litical system, analyse an election, look tions are simply beyond our control good time. at an example of decision making. and perhaps our influence, that lies the This would be institutionally more It is speculative, within the imagi¬ source of confidence and reward for possible if those at the top of the nation, beyond confirmable reality. the decision maker. Insofar as the Department of State pressed for and But if followed out, it would take scholar can imaginatively place him¬ the foreign affairs committees of the place in the real policy world, with self in that perspective, to that extent Congress agreed to create substantial all the limitations of power, informa¬ will the dialogue be facilitated. research capabilities in the social tion and effective implementation that The decision-maker, for his part, sciences of relevance to foreign poli¬ the real world imposes. It is highly needs to accept the hard fact that the cy, managed by civilian agencies. uncertain by its very nature. Most of search for penetrating insight on com¬ They should recognize such capabili¬ us as scholars have had relatively little plex problems cannot always be pur¬ ties are not created in one fiscal year practice at this art. We may have been sued on the run, “by the seat of the but will take multi-year commitments right in our predictions in specific pants,” as the saying goes. The schol¬ and great institutional imagination to instances. And, from these examples, ar’s task is to marshal the evidence of bring about. It will take time to in¬ we may have gained some confidence human experience beyond the decision duce more fruitful scholarly attention that we can participate fruitfully in maker’s memory or ken, to construct to policy problems in ways which will the policy making enterprise. As deci¬ schemes of analysis to order complex not impair the autonomy, the critical sion-makers, some of us have experi¬ data in new ways so as to shed a more capacities, and the fundamental role enced the satisfactions of speculating penetrating light on our condition. of universities in teaching the coming accurately and providing advice which Officials may encourage scholars to generations. ■

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FOEEIGH SEEVIOH JOURNAL, August, 1969 43 {Continued from page 18) fectly. The Argyris report noted the cerning organization, recruitment, chat their behavior might be dys¬ existence of considerable dissatis¬ training, assignment policies, and functional from the point of view faction on the part of younger For¬ promotion policies. of the goals to which the formal eign Service officers with the way The movement has continued to organization is committed. the system works. The ideology is pick up steam and is receiving The over-arching problem of the persuasive but it is not all- more attention from senior Depart¬ Department of State is how to powerful. It cannot always close mental officers in the Nixon Ad¬ achieve necessary changes in the the gap between that which is and ministration than it did during the subculture that dominates the De¬ that which the ideology proclaims. previous Administration. Pressure partment’s life. The Department Unless dissatisfaction is given some from within the Department for will not be able to function effec¬ form of organizational expression, change and reform is being com¬ tively until the problem is solved. however, its significance is likely to bined with pressure from the top Subordinate problems are likely to be minimal. and each reinforces the other. The be manageable once the culture In 1967 this ingredient was Secretary and Under Secretary by itself is modified. The subculture added. A group of Young Turks no means face a Department mon¬ is not fixed and unchangeable. gained control of the American olithic in its resistance to reform. Behavioral norms are modified Foreign Service Association with Bureaucracies do not find it easy somewhat with the passage of time the intention of using the Associa¬ to engage in self-renewal and it is and the elements in the ideology tion as an engine for the reform of intriguing to see the process begin¬ also undergo continuing change. the Foreign Service.0 The reform ning to take place in the Depart¬ Unfortunately the normal processes movement gained the support of a ment of State. Significant reforms of cultural change in the Depart¬ number of senior Foreign Service are clearly in the making. A num¬ ment appear to move at an almost officers and a large number of ber of important elements in the glacial pace. junior officers. A wide range of established ideology are starting to The tempo of the change can be questions are now being asked con- be challenged by a discontented increased only if the subculture is 6 For the reform program of the Amer¬ and articulate faction. The process placed under severe pressure. One ican Foreign Service Association see To¬ of cultural change in any large or¬ such source of pressure is internal— ward A Modern Diplomacy (Copyright, ganization is usually slow, and from within the subculture itself. AFSA, 1968). The ideas embodied in the Report have continued to evolve since doubtless will be slow in this case— No socialization process works per¬ the document went to press. but at least it is underway. ■

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44 FOREIGN SERVICE JOURNAL, August, 1969 (Continued from page 23) painted. The people would squat tions of school and city life. From the saying that would permit an evil above us while they told their tale of mothers’ point of view, it must have spirit to enter the child’s body through woe and then lower themselves or the been something else again, a constant the hole. All the nurse could do was to child onto the sampan for treatment. battle against the elements, dirt, over¬ swab it well and tell her to keep it I stood up in the stern and peered crowding and grinding poverty, yet clean, a vain hope I fear. into the cabins which consisted of a the efforts of the government to bring After an hour or so, the group roofed-in space amidships in which a them to land and rehouse them have diminished and we were able to push whole family lived, crowded in an met with little success. They are off and go out into the harbor. The incredible jumble of pots, pans, sleep¬ wedded to their water borne life and sampan women were remarkable in ing mats, cooking brazier, wash tubs, are loath to leave it. They have their the way they managed the clumsy yet all disposed with a certain order own closely knit society, their special boat, poling it smoothly among the and not always as filthy as one would religious festivals, their own water continually moving traffic. Sampans have expected. On adjoining junks gods and ritual celebrations, such as full of vegetables, fruit, firewood, fish, women would be cooking the meal the Dragon Boat Race, which is one produce of all kinds were meandering over the little bronze braziers which of the tourist attractions of Hong about while every now and then, a serve them for stoves or doing the Kong. junk would move ponderously out to washing by beating the garments on We continued our slow progress sea for a day’s fishing. I was particu¬ the floor of the deck. How Chinese through the teaming harbor, handing larly struck by the good temper of clothes ever stand up to the work out out ointments, bandaging scraped everyone. Boats were continuously they get on wash day is beyond me for limbs, or when it was obviously more banging into each other, there was a they make up in pounding what they serious, administering a stern lecture constant babel of voices, calling out lack in soap. plus a chit to be handed to the doctor warnings and admonitions yet no one They say the water people are dy¬ at the floating clinic. After several' ever yelled in temper, but would push ing out for if they send their children hours of this, we sculled back to the off the barging boat with a laugh and ashore to school, as more and more of landing, unloaded our gear, piled it a joking comment. They would always them are doing these days, the young into the car and drove back to the give way for us and as we moved are seduced by the advantages of liv¬ dispensary to put it all away. As we about, women would lean out of their ing on land and find the life at sea too climbed the hill above the town to junks and wave us over. We would hard for them. However from a return to the other side of the island, I hover under the lee of the junk, for child’s point of view, it looked the looked back at the colorful, busy, the sterns rise high out of the water, ideal life. They were a bright, healthy cheerful scene below me and rather like a seventeenth century galleon, looking lot, skittering around in their hoped the water people wouldn’t all many of them beautifully carved and little sampans, free from the restric¬ come ashore. ■

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FOREIGN SERVICE JOURNAL, August, 1069 45 The Pyramid . . . To Correct inequities

IN partial response to the letter in the I am moved to write this, my first May JOURNAL on “How to Shape a letter to the JOURNAL, because I have Pyramid,” we—who were members of seen selected out of the Service sever¬ the 1968 Board V—were given no al officers whom I know personally, as instructions beyond those in the pre¬ do their other colleagues, to have been cepts for ranking officers eligible for superior in every respect in the per¬ promotion. formance of their duties. The precepts stated that the record of an officer approaching maximum This leads me to examine two as¬ time in class should be reviewed pects of our present personnel system. with particular care. They continued: It is quite possible under the present “While there is a possibility that an system for an officer, let us say in officer in this situation has recently Class 4, to be rated consistently in the demonstrated definitively that he is upper third of his class by successive capable of broader utilization at a selection boards and still to be select¬ A Tribute to the Service higher level, these circumstances ed out for non-promotion after eight would be considered exceptional and years. It is likewise equally possible I WOULD like to make a brief com¬ the Boards should weigh carefully the for an officer of Class 4 to be rated ment on President Nixon’s thoughtful recommendation of such an officer for consistently in the lower ten percent initiative in providing a delightful promotion.” of his class and remain the same eight evening for a group of about eighty While we took this instruction seri¬ years in class before selection out. on May 15, 1969. The press termed ously, we did not feel we were en¬ And it is entirely possible that when the occasion “A Tribute to American joined from giving an officer in that the officer consistently rated in the Ambassadors” because it was in honor situation a high ranking if his recent upper third is selected out other of four Career Ambassadors—Dave record warranted it. officers with less time in class who are Bruce, Chip Bohlen, Tommy Thomp¬ JOSEPH N. GREENE, JR. consistently rated in the lowest 10 son and myself. Actually, it was a Chairman percent continue in service. These are tribute to the American Foreign Serv¬ ORSON TRUEWORTHY admittedly extreme examples. None¬ ice, a happy inspiration of the Pres¬ STEPHEN H. ROGERS theless, a personnel system which ident. He wished to manifest his active CLARENCE L. ELDRIDGE equates these extremes of competence personal interest in the Service as a Department of Labor and incompetence and which lacks to whole as well as his affection and MARGARET A. FAGAN such degree recognition of merit is regard for many individual members PETER WRENN DELOHERY sadly deficient. of the Service. Through his years as Department of Commerce The second aspect to be examined Vice President he enjoyed contact BERNARD BARNES is the extent to which selection boards with numerous Foreign Service per¬ Public Member can make a valid comparison of the sonnel. He values his acquaintance performance of the officers within a with them and is exceptionally appre¬ And How It’s Shaped given class. Wide diversity in the ciative of instances where individually nature of duties and inequality in they have been helpful to him incidenl IN a letter published in the May issue opportunity to demonstrate excellence to his official missions abroad. This of the JOURNAL, an anonymous cor¬ are inescapable in a service such was clearly evident at the dinner. respondent drew a number of con¬ as ours. Furthermore, it is a fact that It seems to me of importance for clusions (in the form of questions) the great majority of annual per¬ members of the Service, some of about last fall’s selection process formance reports are uniformly favor¬ whom may ignore this characteristic based on a time in grade table for able, the differences reflecting perhaps of the President, to know that in Class 3 to 2. The one question not more the drafting skill of the authors addition to the friendly interest of asked was whether there could be than real differences in the per¬ Secretary Rogers and Under Secretary some relationship between the level of formance of the rated officers. Not¬ Richardson, the President is proud in performance and time in class. In¬ withstanding these obstacles to the the conviction that the United States stead, he asserts that “a whole group comparison of officer performance by has the best Foreign Service in today’s of Class 3 officers has been arbitrari¬ selection boards, I believe the boards world. He wants it to maintain that ly earmarked for selection out—and could, with reasonable accuracy, de¬ leadership. that all but a fortunate handful of signate some officers as outstanding During the years I spent in the them are going to be selected out re¬ and some as deficient in performance. Service nothing gave me more satis¬ gardless of their performance level" To go beyond this point by individual¬ faction than the belief that the Pres¬ (underscoring added). ly rank-ordering officers within a class ident, whoever he happened to be, I can assure the anonymous cor¬ is to attribute to the performance understood what we in the Service respondent that the Selection Board report-selection board system a preci¬ were doing or, at least trying to ac¬ made no “arbitrary” decisions and sion which it does not have. complish. If he understood something that, in accordance with the precepts, In order to correct many of the of our problems and took a sympa¬ the factors considered were perform¬ inequities in the present system which thetic view it was a great lift. I believe ance and potential. I do not find it I have described above, I suggest the that President Nixon realizes that all outside the realm of possibility that following broad principles to govern the devoted Service men and women many officers were in Class 3 more the promotion-selection out processes really ask for is his confidence in than six years just because their per¬ of the Service: them, and his guidance as to goals and formance and potential were below 1) Selection boards should objectives. average. divide the officers in each class ROBERT MURPHY JOSEPH A. GREENWALD into upper and lower halves on New York Washington the basis of their performance

46 FOREIGN SEEVICB JOURNAL, August, 1969 records. From the upper half, made to look acceptable by the gar¬ them blocks of American cheese (the boards should select those offi¬ gantuan protocol efforts, favor curry¬ refugees later tried to wash their cers, not exceeding 10 percent ing and “busy” activities of his spouse. clothes with it thinking it was soap) of the class, whose performance The standing cliche of the dominant thought they were doing good. But the has been clearly outstanding; American female is still popular fixed smiles of the Vietnamese officials from the lower half they should among foreign males. This evaluation only barely covered their disapproval. select those officers, not to ex¬ may be unjust but it is a cultural fact A disapproval heightened by the ceed 10 percent, whose per¬ of life. The free-wheeling activities of presence of a busy photographer, on formance has been deficient. No overenthusiastic American women hand to record the scene. attempt should be made to rank- only serve to reinforce such argu¬ The foundations for respect, under¬ order officers individually within ments. standing and compatibility are built on these categories. Joint meetings with long-suffering classic, human qualities. The Foreign 2) A suitable percentage wives of foreign officials (most of Service wife who is a considerate (perhaps 30 percent) of the pro¬ whom would prefer to be home with spouse, a good mother and a relaxed motion list for each class should their children or preparing the evening hostess does more in her unpretentious be taken from the outstanding meal) are often painful manifestations way than the social “go-go girl” who category. Preference within the of our propensity to transfer Ameri¬ is determined to assist her husband in category should be given officers can organizing ability and customs to his career—whether he likes it or not. placed in it by one or more alien, resisting environments. The hor¬ HOWARD R. SIMPSON previous boards. The balance of ror on the face of a young non- Newport American wife when she is informed the list should be drawn from May We Assume Mazatlan? those officers placed in the upper that she has been named finance half of their class but not in the chairman of an American-organized REFERENCE Ted Olson’s comments outstanding category. Preference women’s club is enough to tear the some months ago in the Washington again should be given those heart. Letter concerning the whereabouts of officers whom previous selection More serious is the damage that “hippies” found in Dupont Circle dur¬ boards have placed in the same can result from an insistence on good ing the summer but not in the winter. category. works. Charity may be as American It may be of interest to you that I 3) Needed selection out as apple pie but there is no reason for know perfectly well where “hippies” should come principally from the us to export it in indigestible hunks. go during the long winter although I deficient category with those Forced charity confronted with hu¬ cannot say if my “hippies” are your officers who are placed in the man pride often results in a very “hippies.” deficient category by several negative product. The well-dressed boards (perhaps two in three American wives who met the sick, EDWARD H. WILKINSON years, or three in five years) tired refugees from North Vietnam on American Vice Consul being selected out. the Saigon docks in 1955 and handed Mazatlan 4) These principles should be applied to promotion to all classes except to the classes of Life and Lfve in the Foreign Service by S. I. Nadler career minister and career am¬ bassador. This system would reduce the im¬ portance of any single selection board in favor of the combined judgment of several boards. It would provide a channel of rapid advancement for the truly outstanding officers; it would offer some relief for those officers who consistently do their work in a thoroughly competent way and it would direct the selection out process principally toward those officers whose performance is weakest. WALLACE W. STREET Mexico City The Problem of the F.S. Wife

RECENT letters in the JOURNAL on the role of the Foreign Service wife un¬ derline the need for some plain words on what we might label “the prob¬ lem.” I have found that the officer with a wife who has “done so much for his career” is often a man lacking the solid attributes that would allow him to do the job himself. In other words, the dull shambles he may pro¬ duce through indecision, poor judg¬ ment and simple incompetence is of¬ ten pieced together, burnished and “Why can’t he play the horses, like other disbursing officers?"

FOREIGN SERVICE JOURNAL. August, 1.96S 47 (Continued from page 34) working life, as well as contribute to the solution of problems, which will not yield to intermittent or shifting attack. Conclusion There is no question but that the Foreign Service of the In presenting its proposals the Association has avoided the future will require a large number of talented and experienced temptation to sketch out a “grand design” for the future in men and women of more general skills. The Association be¬ all its details. Rather, it has sought to concentrate on a lieves that increasingly the successful generalists will be offi¬ relatively few significant steps which, if carried out, would cers who have acquired wider scope after having mastered go a long way toward the establishment of a single Foreign a specialty. This reasoning underlies the Association's recom¬ Service of the United States. We regard the unified service mendation to establish a common ground for executive lead¬ as an indispensable first step in any future evolution of the ership—the generalists of tomorrow—open to all personnel manner in which the United States conducts its business abroad. in the foreign affairs agencies, without regard to earlier spe¬ The business of diplomacy is to influence the policies of cialization. other countries. It has become a commonplace to say that If the Association’s recommendations are adopted, the the matters upon which governments now consult and interact three present foreign services would be working under the are becoming more complex; they encompass problems un¬ same conditions of employment and would have the same dreamed of by the diplomacy of thirty years ago. Less well potential for advancement through the career. More impor¬ known is the fact that the increasing complexity of the sub¬ tantly, the Association believes that identity of working con¬ ject matter has not been matched by a similar growth in our ditions will over time foster an identity of purpose and capability of dealing with it. allegiance which is crucial to the nation’s representation As the United States has moved from consultation on abroad, and which has not always been present in the highly major problems of traditional diplomacy to a foreign policy compartmentalized services of the past generation. which now includes internal financial policies, military tech¬ The newly reconstituted Board of the Foreign Service, with nology, the ocean beds, and the movement of agricultural you as its Executive Director, can begin by enunciating a pre¬ commodities through novel mechanisms—and will soon in¬ cise goal; then lay down common policies for the Department clude supersonic “booms,” the multi-national corporation, and of State, AID and USIA. In the process, we will act as though growing uses of atomic energy—our response has been to we had a unified Foreign Service. All of this we can do with¬ call in the experts, and to create new agencies to meet new out further legislation. problems. The result has been a fragmentation of knowledge These are the Association’s proposals. There are others and res"onsibility which has clogged our own governmental worthy of your attention. The Board of Directors of the processes and confused our friends abroad. American Foreign Service Association on behalf of the The creation of a unified Foreign Service will not simplify membership offers its unqualified support to you and the the problems with which we deal. It will not eliminate the Board of the Foreign Service. Working together we surely need for increased expertise. The Association does believe, can bring about the improvements we all so earnestly desire. however, that it will provide the conditions within which Sincerely yours, people with highly developed and specialized skills—as well LANNON WALKER as a bent for international affairs—can spend a satisfying Chairman of the Board

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"ALL RISK'' PERSONAL EFFECTS £ * COMPREHENSIVE INTERNATIONAL INSURANCE (J^ PERSONAL LIABILITY INSURANCE • Breakage • Shipping losses (marine, air, rail, etc.) • Bodily injury liability • General average and salvage contributions • Property damage liability • War risks (while in transit) • Employer's liability (servants, etc.) • Marring, denting, chipping and scratching • Tenants' liability • Theft • Fire • Typhoon • Sports liability • Pilferage • Lightning • Explosion • Fire legal liability (liability to landlords) • Vandalism • Windstorm • Flood • Pets' liability • Disappearance • Hurricane • Earthquake

Check these advantages:

® COMPREHENSIVE COVERAGE. Broad "All Risk" Personal ef¬ The only property exclusions are losses of or from moth and fects coverage . . . with a $50.00 deductible and the insur¬ vermin, gradual deterioration, cash, currency, bank notes, and ance to value requirement assures you of the maximum benefit. war risks. . . . Plus a special international comprehensive per¬ sonal liability insurance (excluding automobile liability) from $25,000. to $100,000. ... all in one convenient package. SPECIAL RATES FOR GOVERNMENT EMPLOYEES CIVILIAN AND MILITARY, WORLDWIDE © SAVINGS. Special rates for those in Government Service plus

(C) IF) the economies of the package insurance concept make TRAVEL- Annual TOTAL VALUE TOTAL VALUE Annual PAK your best foreign insurance buy. COMPARE! Annual rate Travel-Pak PERSONAL IEWELRY AND/ Premium on personal effects is 1.4%. Premium discounts reduce the Premium EFFECTS zF— OR FURS effective rate to 1.225% for two-year policies and 1.167% for three-year policies. . . . Renewal premium credits for years in O $ 2,500 $ 43.00 5 300 Inch which there are' no marine shipments produces still greater $ 2,700 $ 45.80 < $ 500 5 1.00 $ 2,900 S 48.60 Ct' $ 700 $ 2.00 savings. Your maximum discount from the standard premium rate UJ S 3,100 $ 51.40 5 900 $ 3.00 can be as much as 39% I $ 3,300 $ 54.20 (J $1,100 $ 4.00 $ 3,500 5 57.00 $1,300 $ 5.00 X © ALLOWANCE FOR YOUR PRESENT INSURANCE. 5 3,700 S 59.80 1— 51,500 5 6.00 There is no $ 3,900 $ 62.60 UU $1,700 S 7.00 need for you to wait for your present insurance to expire to apply Z $ 4,100 S 65.40 $1,900 $ 8.00 for this broader coverage. We'll give you a premium credit for S 4,300 S 68.20 UJ $2,100 5 9.00 $ 4,500 S 71.00 b 52,300 510.00 any personal effects insurance you already have. S 4,700 S 73.80 UJ $2,500 $11.00 S 4,900 $ 76.60 < $2,700 $12.00 (D CONFIDENCE. Your policy will be underwritten by Lloyd's S 5,100 S 79.40 S2.900 $13.00 London Underwriters—world renowned for security. $ 5,300 $ 82.20 53,100 514.00 $ 5,500 $ 85.00 2 53.300 515.00 $ 5,700 $ 87.80 CD 53,500 $16.00 © BREAKAGE INCLUDED. Your valuable articles are insured < $ 5,900 S 90.60 1- $3,700 $17.00 against breakage in transit provided they have been profession¬ $ 6,100 $ 93.40 $3,900 $18.00 ally packed. $ 6,300 S 96.20 S4.100 519.00 $ 6,500 S 99.00 f— $4,300 $20.00 z S 6,700 $101.80 54,500 $21.00 © WORLD-WIDE CLAIMS SERVICE. We offer the promptest pos¬ $ 6,900 $104.60 o $4,700 S22.00 sible payment of claims, for TRAVEL-PAK operates through the $ 7,100 $107.40 Z' $4,900 $23.00 5 7,300 $110.20 < $5,000 $23.50 world's largest personal insurance claims network with claims $ 7,500 $113.00 z contact points in over 200 cities throughout the world . . . $ 7,700 $115.80 UJ including Eastern Europe. $ 7,900 $118.60 > $ 8,100 $121.40 cc © CONVENIENCE. TRAVEL-PAK is just one easy-to-understand $ 8,300 $124.20 (!) S 8,500 $127.00 INCREASED AMOUNTS OF policy that covers your property and liability needs. You deal $ 8,700 $129.80 LIABILITY S 8,900 $132.60 in with just one experienced firm. 5 9,100 $135.40 < 5 9,300 $138.20 o © NON-CANCELLABLE PROTECTION. The Underwriters cannot f— $ 9,500 5141.00 Di cancel your coverage during the normal term of the policy except $ 9,700 5143.80 D $ 50,000 $5.00 $ 9,900 $146.60 o in the case of fraudulent declaration or claim or for non-payment $10,000 $148.00 $ 75,000 $6.50 — of premium. $100,000 57.50 We also have excellent facilities lor your Life, Accident, Health, Each adcfilional $100 value, add $1.40. Home, Auto, and Marine insurance requirements—at home or abroach

James W. Barrett Co., Inc. Use application opposite or call or write: 1140 Connecticut Avenue, N. W. I Washington, D. C. 20036 202/296-6440