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(202 234-5600 1701 Florida Avenue NW Washington DC 20009 CONTENTS

Money and Management 22 An Interview with Representative Daniel Mica The head of the House International Operations Sub¬ committee talks of dollars and diplomacy.

Questionnaire Results: Dissent 27 Frances G. Burwell The Foreign Service seeks a more open environment, where debate doesn’t harm a career. COVER: It’s true. For more than two years, the State Department has failed to reimburse the influ¬ ential chairman of the House Subcommittee on In¬ Life and Love in the Foreign Service 30 ternational Operations—the panel that oversees State’s budget—for expenses incurred during his Our annual collection of April foolery. service as a U.S. delegate to the U.N. 's 40th General Assembly. To find out about some of the more important criticisms Mica has about the for¬ Assisting Africa 32 eign affairs agencies, see our interview on page 22. James F. Entwistle Africans should tell aid donors what they want, not the other way around.

Journal: With No Regrets 38 Fred Godsey A Foreign Service officer aids a Soviet’s defection from communist Hungary.

Association Views ... 3 Scholarship Essay — 40 Letters 4 People 41 Books 8 Foreign Exchange — 42 Clippings ....17 Election Section 47 10-25-50 ....20 Association News — 58

Editor: STEPHEN R. DUJACK Despatch ....21 Senior Editor: FRANCES G. BURWELL Assistant Editor: WILLIAM E. WICKERT III

Editorial Board

Chair: A. STEPHEN TELKINS Vice Chair: ANDREW STEIGMAN “The Independent Voice of the Foreign Service” Members: JIM ANDERSON

THOMAS DOWLING The FOREIGN SERVICE JOURNAL is the magazine for dress changes to FOREIGN SERVICE JOURNAL, 2101 E STEPHEN EISENBRAUN professionals in foreign affairs, published monthly Street NW, Washington, D.C. 20037. LINDA JEWELL except August by the American Foreign Service As¬ Microfilm copies: University Microfilm Library TERESA CHIN JONES sociation, a private non-profit organization. Material Services, Ann Arbor, Michigan 48106 (October PATRICIA MALLON appearing herein represents the opinions of the writ¬ 1967 to present). Indexed by PAIS. WILLIAM B. NANCE ers and does not necessarily represent the official The JOURNAL welcomes manuscripts of 1500- JOHN D. PIELEMEIER views of the foreign affairs agencies, the U.S. govern¬ 4000 words for consideration by the Editorial Board. ment, or AFSA. The Editorial Board is responsible Author queries are strongly urged, stamped envelope Advertising Representatives for general content, but statements concerning the required for return. All authors are paid on publica- policy and administration of AFSA as employee rep¬ JAMES C. SASMOR ASSOCIATES resentative under the Foreign Service Act of 1980 in 521 Fifth Ave., Suite 1700 the ASSOCIATION NEWS and the ASSOCIATION VIEWS, New York, N.Y. 10017. and all communications relating to these, are the © American Foreign Service Association, 1987. (212) 683-3421 responsibility of the AFSA Governing Board. 2101 E Street NW, Washington, D.C. 20037. JOURNAL subscriptions: One year (11 issues), $15. Phone (202) 338-4045. JOSHUA B. POWERS, LTD. Overseas subscriptions (except Canada), add $3 per 46 Keyes House, Dolphin Square, year. Airmail not available. London SW1. 01-834-5566. Second-class postage paid at Washington, D.C., April 1987. Volume 64, number 4. ISSN International Representatives and at additional post office. POSTMASTER: Send ad¬ 0015-7279.

2 FOREIGN SERVICE JOURNAL ASSOCIATION VIEWS I

AMERICAN FOREIGN Diplomacy on the Cheap SERVICE ASSOCIATION Governing Board

President: GERALD LAMBERTY State Vice President: ANTHEA S. DE ROUVILLE AID Vice President: FRANK YOUNG j^n July 1981, as a businessman-turned-ambassador, I brought with me US IA Vice President: A. STEPHEN TELKINS to the world of diplomacy the notion that the people’s business was one like Secretary: HARTFORD T. JENNINGS any other. There would be inevitable gains and losses, but if the purpose was Treasurer: SAMUEL MOK useful and adequately funded the end product would be worthwhile. AID Representative: PAUL BISEK JEAN DU RETTE Unfortunately, the kind of shortsighted budget restrictions currently State Representatives: SCOTT DANAHER being imposed by Congress on our nation’s diplomatic service are forcing me SANDRA DEMBSKI to revise that view. Although most Americans accept the need for a strong JAMES A. DERRICK American defense effort, Congress is, in effect, undermining what is really BARBARA HUGHES USIA Representative: JOHN QUINTUS our first and most cost-effective line of defense—the practice of diplomacy. Retired Representatives: WILLIAM CALDERHEAD While other arms of government can cut back on programs or hardware, ROGER PROVENCHER our diplomatic service has only one fundamental tool available to it— JOHN THOMAS people. These people, in our embassies around the world, collect, analyze, Staff and provide to the key decision-makers in Washington the vital information Director for necessary to the formulation and implementation of our foreign policy. Administration: SUE B. SCHUMACHER General Counsel: SUSAN Z. HOLIK And what does it cost us? Very little indeed. For every State Department Director of employee overseas there are 25 U.S. military personnel stationed abroad. Member Services: SABINE SISK Total State Department expenditures for a year amount to only two-tenths Member Services of one percent of the federal budget. Representative: GERALD M. KUNCIO Controller: ELLEN TENN That is really diplomacy on the cheap. Membership Coordinator: MYRIAM DUNCAN In real terms the State Department’s budget has remained almost static Executive Assistant: DENISE BYERS over the past decade. The only significant growth has been in mandatory Legal Assistant: CHRIS BAZAR Law Clerk: RICHARD M. PRICE wage and price increases and security improvements to combat the increased Executive Secretary: BONITA CARROLL terrorist threat to those serving us overseas. The corrosive effect of cost¬ Executive Secretary: SHARON Y. MORGAN cutting and budget clamps is, however, creating a dangerous gap in our Congressional Liaison

diplomatic shield. ROBERT M. BEERS We are reducing the number of our foreign national employees and RICK WEISS severely restricting their salaries, thereby losing the expertise and backup of Scholarship Programs a work force that is a critical element of our overseas operations. We are DAWN CUTHELL slashing our consular and other services to the public, both foreign and Face-to-Face Program American. In the process we are sullying the image of our embassies as STEVEN PHILIP KRAMER havens of assistance and advice and as windows on America. The American Foreign Service Association, founded in 1924, is the professional association of the Foreign Our government seeks out and trains for the Foreign Service the best Service and the official employee representative of all talent our country has to offer. These people are our best and brightest. It Foreign Service employees in the Department of State and the Agency for International Development under has been my great fortune to serve with this highly professional and dedi¬ the terms of the Foreign Service Act of 1980. Active cated body of men and women for almost six years in two Foreign Service membership in AFSA is open to all current or retired posts. That they are increasingly denied the necessary resources to carry out professionals in foreign affairs overseas or in the Unit¬ ed States. Associate membership is open to persons their mandate should be cause for concern for every American. having an active interest in or close association with To rectify this situation, Secretary George Shultz is seeking supplemental foreign affairs who are not employees or retirees of the funds for the State Department’s fiscal year 1987 budget. He also has put foreign affairs agencies. Annual dues: Active Mem¬ bers—$65-143; Retired Active Members—$45 for forward a sensible and compelling financial blueprint for 1988. It is essen¬ members with incomes over $20,000, $30 for under; tial to the orderly conduct of our first line of defense that these funds be Associate Members—$35. All dues include $9.50 al¬ made available to him. The austerity measures the U.S. Foreign Service is location for JOURNAL and ASSOCIATION NEWS sub¬ scription under AFSA Bylaws. All AFSA members are being forced to take, to say nothing of further scheduled cuts in its budget members of the Foreign Service Club.

for fiscal year 1988, represent a serious threat to our nation’s security. AMERICAN FOREIGN SERVICE ASSOCIATION Diplomacy on the cheap is no bargain for the American people. 2101 E Street NW, Washington, D.C. 20037 —Charles H. Price II, ambassador to the United Kingdom, Membership inquiries, comptroller, scholarship programs, insurance programs, reprinted by permission of . JOURNAL offices: (202) 338-4045 Governing Board, general counsel, labor-management relations, member services, grievances: (202) 647-8160 Foreign Service Club: (202) 333-8477

APRIL 1987 3 LETTERS

Swiss Treats Some things, it seems, never change. Like our ambassador to Switzerland. We read that Marvin Warner, ambassador during the Carter administration, has just been convicted of securities violations in Ohio; meanwhile Faith Whittlesey, our current envoy in Bern, has allowed her embassy’s private representational funds to be used for purchases that no career officer would have permitted. Back in the early 1960s, a Swiss indus- It’s easy to make the move tralist named Schindler (elevators, railroad cars) needled me, a young consul in his more difficult; but it’s not hard to make home town of Basel, about the ambassa¬ dors we were sending to his country. (Yes, your moving experience easier. . . we had a consulate in Basel. Shortly after we closed it, along with a lot of others, the “Easier” is easier “experts” discovered a need in the Service ivith planning and communication. for mid-level management training courses—but that’s another story.) Our When medical examina¬ problem is troubling you. ambassador then was an individualist of sorts, whose idiosyncracies had not en¬ tions conflict with your mov¬ Two, ask us for a copy of deared him to the Swiss. He had, inter ing date; when items are left our “New Assignment Abroad alia, displayed a semi-nude painting of his off the pre-planning survey; Checklist,” a simple, compre¬ maid behind his wife’s chair in the ambas¬ when we don’t know that you hensive guide that will give sadorial dining room. He had also man¬ have certain valuables that you what you need to know aged to get rid of his DCM, a highly respected career diplomat. His successor- need special packing con¬ to make your move easier. designate was another political appointee siderations - that’s when the Call (301) 420-3300 for with no previous diplomatic experience. move can become more diffi¬ the “Information Service” Schindler’s question was pointed: cult for you. Nobody wants and/or checklist. We’re here Would Switzerland never get anything that. to make your move the best but politically appointed amateurs as ever. Bon Voyage. American ambassadors? After recalling We believe that careful that some of our most distinguished career planning and communications diplomats (, Frances make the difference between Select District Moving and Willis) had headed our mission in Bern, I an easy move and a hard one. Storage for an easier moving had to admit that as long as (a) ambassa¬ So, we have two ideas in that experience. dorships remained among the spoils of our context that you are invited political system, (b) Swiss-American rela¬ tions were so good, and (c) life in Bern was to use. so pleasant, Switzerland’s luck was not One, call our new “Moving likely to change. Abroad Telephone Informa¬ tion Service” for answers to RUSSELL PRICKETT specific questions about plan¬ HDISTOCT Foreign Service Ojficer, retired MOVING G* STORAGE , INC. Austin, Texas ning, scheduling, packing, 3850 Penn Belt Place air freight, accompanied Forestville, Maryland 20747 Missing the Mark baggage or whatever special 301-420-3300 I believe your review of The Liberation of One [BOOKS, November] was far off the mark. I served as American press attache in

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Telephone Telex Warsaw from 1977—80 and I thought the way. It will enable the women to re-enter book by former Polish diplomat Romuald the group health plan, provide a share of Spasowski offered excellent insight into survivor benfits, and may provide other what has happened to Poland and the Poles assistance as well. When enacted, there during the past half century. will be time limits to the period in which Your reviewer criticizes Mr. Spasowski, one may enroll. It is urgent that we track who was Polish ambassador in Washing¬ down every woman now. ton when he defected the day after martial We ask all JOURNAL readers to contact law was declared in 1981, for providing a divorced Foreign Service wives among personal chronicle instead of a “penetrat¬ their friends who may still be unaware'of ing political analysis.” This seems espe¬ these legislative possibilities. Please ask cially misguided. Should we really study them to contact the Family Liaison Office, "There was the political developments in the abstract, Room 1212A, Department of State, door to which I without regard to how they affect people? I Washington, D.C. 20520, or call suggest that more can be learned from (202)647-1076. Or write to AAFSW, PO found no key....” some of Spasowski’s anecdotes than from Box 70051, Washington, D.C. 20024. Edward Fitzgerald reading yet another analysis of the latest proposal to fix the Polish economy. MIRYAM HIRSH Spasowski is an intelligent and educated Displaced Foreign Service Partners ATTENTION... man who gives us a frequently moving PAMELA MOFFAT account of the coming of fascism and then AAFSW PEOPLE on the communism to Poland. No doubt his book Washington, D.C. MOVE... has its flaws, but it should not be dis¬ missed because it stresses people instead of Williams Remembered policies. That is its virtue. Your November issue announced the sad We special ze in sales RICHARD VIRDEN news of the passing of John Z. Williams and property Public Affairs Officer last summer. I searched your notice in vain management in the Lisbon, Portugal for any mention of the most extraordinary Metropolitan thing he did: from the late summer of Divorced Spouses 1945 on, for three kaleidescopic years, Washington area. Jack was the only officer in the department The Association of American Foreign Ser¬ assigned full-time to Korean affairs. He vice Women would like to contact Foreign was assigned, of course, without the Cathie Gill has the key Service wives who were divorced before slightest previous knowledge or expe¬ to care-free services for 1981. Since the 1970s, AAFSW has rience. He worked hard, intelligently, and all your real estate worked to change the laws that prohibit with an open-minded, often-amused curi¬ needs. these women from receiving either a share osity to perform the almost impossible du¬ of their husband’s pension, survivor bene¬ ties the department imposed on him. fits, or the right to re-enter the Foreign Less than two years after his assignment Service group health plan. the Korean war erupted. The newly reborn Personal attention Helped by the moving testimony of Korean nation—whose postwar affairs the these women, the Foreign Service Act was department had felt insufficiently impor¬ gets results. amended, effective February 15, 1981, to tant to assign thereto full-time more than a provide a pro-rata share of pension and single, inexperienced junior officer—was survivor benefits to those divorced after now the subject of “the most important Call that date. Unfortunately, Congress, in its decision” of President Truman’s years in reluctance to enact anything retroactive, office. failed to help the very women who inspired Jack Williams was that officer. Failure the amendment. even to note that crucial service inadver¬ Most of these women spent 25—30 years tently repeats the same belittling of Kore¬ working to further Foreign Service inter¬ an affairs of which the department was 4801 Massachusetts ests abroad through their unpaid efforts. then so grievously and misguidedly Until 1972, in fact, they were subject to guilty. Ave., N.W. inclusion in their husband’s efficiency re¬ Suite 400 ports. But they had no possibility of Social GREGORY HENDERSON Security or Medicare as a result. Medford, Massachusetts Washington, D.C. Now that there is again hope of legisla¬ 20016 tion on their behalf in the 100th Congress, Correction we are unable to trace a sizeable number of (202) 364-3066 these ex-wives. Mail has come back “for¬ In the January issue we noted that D.F. ward order expired” or “unknown.” The Shaughnessy, the author of “Eden’s Folly,” new legislation will not touch the pension was a retired official of the British govern¬ rights of the former husbands nor existing ment. He is, in fact, a former official of the assignments of survivor benefits in any U.S. government. We regret the error.

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APRIL 1987 7 6000 miles from here... BOOKS This one won’t work. Reviews

The Agency: The Rise and Decline of the CIA. By John Ranelagh. Simon & Schuster, 1986.

The CIA and the U.S. Intelligence Sys¬ tem. By Scott D. Breckinridge. Westvieiv Press, 1986. $30.

Can you The market for books on the CIA is never saturated. These two are both timely and tell the difference? worthy additions to the library of anyone interested in intelligence or national secu¬ When it comes to appliances, every country makes its own rules. Voltages, cycles, TV and video standards just aren’t the same overseas rity. Moreover, the two are utterly dis¬ as they are here in the USA. There are TVs and VCRs that work equally similar in style and approach, even though well both here and abroad, but you shouldn’t expect that your local Sears subject and scope overlap. will be able to supply your needs... or even know what they are. The CIA and the U.S. Intelligence System is We know. Twenty-five years worth of experience makes us expert in avowedly a treatise or textbook, written all the things you’ll need to know if you’re in government service overseas. for use by universities and researchers by We stock a complete line of home appliances for 220 volts, 50 cycles— an ex-CIA professional who spent 16 years all major brands. And all of our prices are substantially discounted. in the agency’s inspector general depart¬ Our large inventory assures prompt shipment. And we can ship ment. Starting with a legislative history, anywhere in the USA or worldwide if you prefer—free of US taxes. the book covers the main fields of intelli¬ With all that assurance, you’ll be pleased to find that our prices are gence activity, including techniques and most competitive and our service is second to none. analysis of intelligence collection, counter¬ Call or write for literature, advice and price information. intelligence, covert and paramilitary oper¬ ations, as well as the status of intelligence Appliances Overseas, Inc. operations under U.S. and international 330 Fifth Avenue, New York, NY 10001 (212)736-7860 law. A particularly valuable section deals Please refer to Department 7E. with satellite and electronic surveillance techniques. On organizational detail it is authoritative, to say the least. The book does less to analyze the rela¬ tionship of the intelligence community to the foreign policy establishment, nor does it adequately evaluate the strengths and weaknesses of its methods and personnel. Where mentioned at all, U.S. foreign policy objectives are recited in the wooden platitudes of the Government Organiza¬ tion Manual. The book’s few attempts to tie CIA covert operations to actual histori¬ ciperbcicks cal events are misleading or naively excul¬ • Illustrated monthly newsletter Fast service on book orders patory. Its explanation of the mining of listing over 300 new releases, Discount prices Nicaraguan ports and harbors is simply categorized with synopses Not a book club - no purchase false. The purpose was not to interdict the • Trade and mass market required infinitesimal outbound trickle of small- Subscribe today - send check or money order boat arms traffic to the Salvadoran rebels, for S9.95 (S18.00 foreign) for one full year to: but to conduct a clandestine and illegal PAPERBACK PREVIEWS blockade of imports in order to cripple the P.0. BOX 8368-S Nicaraguan economy. Albuquerque, NM 87198 The Agency, on the other hand, describes FREE sample copy on request the CIA in the context of foreign policy and the agency’s leading personalities. It

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WRITE TO: DIPLOMATIC SALES NAME FORD MOTOR COMPANY 815 Connecticut Avenue, N.W ADDRESS Washington, D.C. 20006 CITY STATE Tel: (202) 785-6047 COUNTRY ZIP covers the same ground as the Breckin¬ of terrorism, an impact that has been felt Reagan's legacy in the wake ridge book but in a more descriptive and in death, destruction, and destabilization of the arms-for-hostages less schematic way. It also provides pen around the world. The conventional wis¬ fiasco with Iran portraits of recent directors of—for differ¬ dom has been that combating terrorism ent reasons the author particularly admires requires superlative intelligence to provide FOREIGN POLICY Allen Dulles and William Colby—and at¬ early warning of attacks, highly trained tempts a critique of the agency’s missions, forces to respond when attacks occur, and Spring 1987 especially covert operations. Also covered aggressive punishments for those persons 192pp. are the agency’s shifting relationship with and countries involved in or sponsoring $21/yr. Congress, the changing profile of its per¬ such actions. Occasionally, pre-emptive $26 overseas sonnel, the ever-increasing reliance on measures are advocated in what is other¬ technology, and the impact of size and wise a defensive response to terrorism. bureaucratization. The book is eminently With the publication of The Financing of Features: readable, in the easy, literate style of the Terror, James Adams, defense correspon¬ ■ China’s quest best British journalism. dent for the London Sunday Times, has pro¬ for wealth and Profusely footnoted, and nearly 700 posed a new approach to counterterrorist power pages long, The Agency is a serious work of strategy. In Adams’s view, the preoccupa¬ exceptional quality. The author, who tion of western countries with the ques¬ ■ surprising U.S. works in British television, seems to have tions of state support for and retaliation attitudes on been given unusual cooperation by promi¬ against terrorism indicates that govern¬ foreign policy nent agency alumni. According to the in¬ ments have failed to recognize the chang¬ issues troduction, the book would not have been ing character of the terrorist threat. Adams ■ the scandal- possible without the assistance of the argues that, while early terrorist groups ridden effort to CIA’s ex-controller. Hundreds of ex-agen- were small collections of impoverished ac¬ fund the cy personnel were interviewed; “thousands tivists pursuing a goal, the groups that bedevil the democratic world today are ac¬ ■ myths about of documents” procured through the Free¬ Palestinians dom of Information Act; the voluminous tually financial empires that use —and, records of the Church committee were where necessary, reach accommodation FOREIGN POLICY carefully scrutinized. The project took with—the capitalistic societies they pro¬ four years, employed three research assis¬ fess to oppose. P.O. Box 984 Farmingdale NY 11737 USA (202) 797-6428 tants, and required the author to spend Adams’s principal argument is that the large blocks of time in the United States. fight against terrorist groups has failed The result is a book not only friendly to the to recognize and respond to the growing CIA, but in places tinged with romantic financial strength of the terrorists. He ar¬ admiration. gues that concentrating on “body counts” THE SCHOOL Missing from both books are the views and arrests of terrorists without attacking THAT COMES TO of the intelligence community’s “custom¬ their underlying financial empires is dan¬ ers”, the foreign policymakers. Neither gerous and must be redirected if terrorism YOUR CHILD. cites ex-presidents, secretaries or assistant is to be defeated. In making his case, Ad¬ Kindergarten through 8th Grade. secretaries of state, ambassadors, or per¬ ams concentrates on four groups: the Pal¬ Complete home study course sonnel of other departments as to the qual¬ estine Liberation Organization, the Irish Republican Army, the Red Brigades, and for elementary-level students. ity of U.S. intelligence. Both skate over covert action disasters and the question of the Colombian Revolutionary Armed An American education whether the expense and effort lavished on Forces. Adams demonstrates that each anywhere in the world. Ideal covert action was worthwhile. The Agency, group has moved from financial depend¬ for enrichment. Home is the in particular, tends to personalize the CIA ence on outsiders to economic indepen¬ classroom, you are the teacher as an admirably faithful executor of presi¬ dence, in some cases controlling much of with Calvert’s approved instruc¬ dential fiat—not as a bureaucracy inextri¬ the day-to-day infrastructure of the coun¬ tion guide. Start anytime, cably linked to the foreign policy process, tries in which they operate. Along the transfer to other schools. Used whose blunders and excesses inevitably way, Adams suggests that the involve¬ by over 350,000 students. Non¬ hamper the achievement of solid, long¬ ment of the Soviets and countries such as profit. Write for catalog. term objectives. Neither author questions Libya is less important than has been sug¬ the “cops and robbers” approach to Third gested. World Marxism and Moslem fundamen¬ His case is cogent and those who are CALVERT SCHOOL talism that continues to embroil the Unit¬ more than casually interested in counter¬ ed States in regional quarrels, sometimes ing terrorism should consider the contents Established 1897 301-243-6030 on the wrong side. of this book carefully. —MAYER NUDELL Dept. F47, Tuscany Rd., Baltimore, MD 21210 —CHARLES MAECHLING JR.

Parent’s Name China: Asia’s Next Economic Giant? By Address The Financing of Terror. By James Ad¬ Dwight Perkins. University of Washington

City _State ams. Simon and Schuster, 1986. $18.95 Press, 1986. $12.95.

Child’s Age Grade The Foreign Service community has be¬ This small book is a revolutionary account come all-too-painfully aware of the impact of China’s economic development. Perkins

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APRIL 1987 11 analyzes China’s progress in comparison to offers more stimulus for Asian specialists of stagnation and political torpor, they the growth-oriented economies of Japan, and the still-groping developmental have projected onto him their own pet pre¬ South Korea, Taiwan, Hong Kong, and economists than do many longer interpre¬ scriptions for curing “le mal Sovietique.” Singapore. He attributes the success of tations. Two recent biographies of the general sec¬ these economies to supportive political These essays were first offered as the retary provide both examples of such and human-resource environments. While inaugural lectures before the University of thinking and antidotes. he argues that the supportive political en¬ Washington’s Henry M. Jackson School of Schmidt-Hauer, for many years the vironment the Chinese economy has en¬ International Studies. Perkins’s book is a Moscow correspondent of Die Zeit, has joyed since Mao’s death has aided its fitting tribute to the man who contributed concluded that Gorbachev is “good not growth, he refreshingly acknowledges that so much to shaping U.S.-China relations. only for Russia, but also for the rest of the economic analysts have yet to establish the —JOHN A. LACEY world.. .especially if the West helps him.” causal relationships between cultural and Unfortunately, Schmidt-Hauer does not so economic developments. much prove that Gorbachev is a reformer, The critical question, however, is Gorbachev: The Path to Power. By Chris¬ but rather asserts it—over and over again. whether China will continue its outward- tian Schmidt-Hauer. Salem House, 1986, This book is little more than a pastiche of oriented policies despite its built-in demo¬ $15.95. potted history and superficial, wishful graphic weaknesses and an inevitable thinking. The book, both frustrating and change of leadership. Gorbachev. By Zhores Medvedev. W.W. infuriating, is of interest only insofar as it Perkins concludes guardedly that Chi¬ Norton & Company, 1986. $15.95 suggests a certain turn of mind, current in na’s reform momentum will be difficult to Europe and to a lesser degree in U.S. aca¬ derail. By century’s end, he sees a China Ever since he assumed power almost two demic circles, which believes that only a transformed from a peasant economy into years ago, Mikhail Gorbachev’s intentions pliant western negotiating posture on an urban, industrial society fully integrat¬ and political agenda have become a kind of arms control can keep another Soviet effort ed with the international economy. Vi¬ Rorschach test for western pundits. Many at reform from aborting. This glib book sionary? Perhaps. Insightfully provoca¬ knowledgeable observers, recognizing the should be on anyone’s list of the ten worst tive? Yes, indeed! Perkins’s lucid economic and social problems facing the political books of 1986. One might specu¬ presentation leaves ample room for nit¬ Soviet Union today, have concluded that late that the results of the Iceland summit picking. He slights too easily the impact Gorbachev is intent on a thorough going may have led many Europeans, who might of U.S. political and economic support on effort at “radical reform.” Seizing on his otherwise have been tempted by Schmidt- East Asia’s growth environment. Never¬ apparent determination to get the Soviet Hauer’s thesis, to question the ultimate theless, this brief but masterful analysis Union moving again after almost a decade consequences of such a view of East-West relations. Medvedev, on the other hand, has pro¬ duced a fine, detailed, and balanced biog¬ raphy which helps place Gorbachev’s ca¬ reer in a fuller perspective. The book is well worth the time it takes to get through the meticulous account of the vicissitudes of Soviet agriculture in the last decade. The author is impressed by the new style the Soviet leader has demonstrated since March 1985 but is careful not to confuse style and substance. Medvedev’s recount¬ ing of the circumstances that brought Gor¬ No Matter Where You Are, bachev to power helps us to understand both the general secretary’s rhetoric and program. The picture emerges of a gener¬ You Can Have Peace of Mind ally orthodox party functionary whose pro¬ gress to the top was facilitated by some of with Interstate... his country’s most conservative and au¬ thoritarian figures. An intelligent man, knowing that Interstate will send trained packers to handle your valuable Gorbachev recognizes the severity of the possessions . . . knowing that .you can store your valuable possessions in problems gripping the Soviet Union and is temperature-controlled secured facilities while you are abroad . . . oriented toward solving them rather than knowing that you are dealing directly with Interstate’s corporate standing fast by ideology. He is, however, headquarters. a product of the system and does not chal¬ Now with this knowledge, make the right choice for your peace of mind. lenge its fundamental tenets—party con¬ In A Class By Itself. . . America 's Favorite Mover trol of a basically command economy. He is confident of his abilities and his rapid rise has probably encouraged him to have greater faith in himself than may be war¬ INTERSTATE ranted—especially in international affairs VlZ Van Jin., 3nc. where he is relatively inexperienced. 5801 Rolling Road, Springfield, VA. 22152-1041 • 800-336-1533 • (703) 569-2121 ext. 233 Medvedev soberly concludes that “Gor¬ bachev is neither a liberal nor a bold refer-

12 FOREIGN SERVICE JOURNAL mist. He prefers small modifications, ad¬ per’s five volumes of European travels, ciate Cooper’s efforts on behalf of U.S. dip¬ ministrative methods, and economic which have been out of print since the lomats. Thus, in Gleanings in Europe: adjustments to structural reform. But 1830s. From 1826 to 1833, America’s France, Cooper writes: there are indications that he has not yet first great novelist lived and traveled ex¬ made his final choice.” In fact, Gorbachev tensively in Western Europe. Although “Any one accustomed to the world can probably does not yet know himself what Cooper was consul in Lyon, he spent al¬ readily understand how much may be course he will ultimately pursue. His call most five years in Paris, where, as an inti¬ effected by the kind feelings that are for accelerated socio-economic develop¬ mate of the Marquis de Lafayette, he was engendered by daily social intercourse. ment and greater openness in Soviet soci¬ an active observer of the French political A few words can be whispered in the ear ety are as much, if not more, a part of his scene through the 1830 revolution and a of a minister in the corner of a drawing strategy for consolidating power during a leader of American support to Polish na¬ room, that would never reach him in time of generational change as they are a tionalists fleeing Russia in 1830—31. Coo¬ his bureau In saving...a few thou¬ strategy for governing. per also lived for several years in Florence, sand dollars a year, we trifle with our We are unlikely to know how much Naples, and Rome, and spent shorter per¬ own interests, frequently embarrass our Gorbachev is willing to depart from ortho¬ iods in England, along with undertaking agents, and in some degree discredit doxy until several years have passed. His extensive walking tours in Switzerland, the country.” tinkering with the economic mechanism and touring Belgium and the Rhineland. will have proved to be an unsatisfactory In some places Cooper was primarily a SUNY Press has filled an important gap path for promoting growth. But, until tourist; in Paris, London, and the Italian in American letters by republishing these that day of reckoning arrives, we would all cities, he was an active participant in dip¬ five volumes. Prepared under the general do well to heed Medvedev’s advice and not lomatic, political, and cultural circles. His editorship of James F. Beard, the texts are hold excessive expectations for Gorba¬ description of places, incidents, and peo¬ extensively but unobtrusively annotated to chev’s achievements. —ERIC EDELMAN ple is worthy of an author who is rightly explain references and allusions not famil¬ famed as a master of scenic writing. In iar to modern readers, and handsomely il¬ recent years, there has grown a realization lustrated with contemporary maps and American Books Abroad: Toward A Na¬ that Cooper stands with Alexis de Toque- prints. Readers interested in Western Eu¬ tional Policy. Edited by William M. Childs ville as a pioneer of intercultural analysis rope will find these volumes particularly and Donald E. McNeil. Helen Dwight Reid and, in particular, of the relationship be¬ entertaining and enlightening, and the ap¬ Educational Foundation, 1986. $35. tween European and American cultures in propriate posts should have them on their the 1830s. library shelves. “An arsenal of books is far better than Foreign Service readers will also appre¬ —HUGH C. MACDOUGALL tanks, guns, planes and missiles. ” This ex¬ cellent book stresses that national objec¬ tives and cultural heritage can be ex¬ plained far better through books than The Intelligent Alternative weapons. The contributors—all of them leading to Overpriced Hotels. educatiors and diplomats—voiced regret that USIA has recently curtailed the worldwide American book distribution Now you can enjoy more than twice the living space of an ordinary hotel program. The program once distributed room at less than one-half the cost.* And still have all the services and 10—12 million American books, but by luxuries you need: 24-hour switchboard, maids and linens; outdoor swim¬ 1984 fewer than half a million books were ming pool and whirlpool; indoor Health Club with sauna; Computer Room involved. This study, requested by USIA and Conference Room with catering kitchen. There’s a complimentary Director Charlez Z. Wick, recommended Continental breakfast. Children and extra guests are welcomed and there that the agency now take the lead in get¬ is no charge for parking. All located off Washington Boulevard opposite ting more public and private cooperation Fort Myer and minutes from the District, the Pentagon, Crystal City and in producing low-priced American books National Airport. If you are transferring into the Washington area or are here temporar¬ for overseas markets. ily on company or government business, call The Executive Club today. 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Gleanings in Europe: Switzerland, Italy, England, France, The Rhine. By James Feni- 108 South Courthouse Road more Cooper. State University of New York Arlington, Virginia 22204 Press, 1980-1986. Five volumes: $44-50 each (cloth); $16.95 each (paper). (703) 522-C L U B (800) 535-C L U B

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APRIL 1987 13 The Kremlin and the West: A Realistic Approach. By Wolfgang Leonhard. Translat¬ ed by Houchen Chehabi. W. W. Norton &Co., 1986. $17.95

It would be a shame if this extremely rea¬ There Is Only One Place sonable, useful, and well-written book were lost in the current flood of books on To Stay In Washington Soviet affairs and East-West relations. Wolfgang Leonhard, who teaches history YOUR PLACE at Yale University, is uniquely qualified as an analyst of Soviet affairs. The son of Ger¬ man Communists, he was educated in Sta¬ “A Hotel Alternative For The Prudent Spender.” SHORT OR LONG TERM LUXURY lin’s Russia during World War II, and was APARTMENTS, TOWNHOUSES. PENTHOUSES an official in the German Democratic Re¬ All Suites Tastefully Furnished & Fully public when he defected to the West. Equipped Kitchens * Telephone * Cable Television * Security Intercom System Thus, he writes with the authority of an Complete Health Spa * Concierge * Parking Laundry and Valet * Maid Svc (optional) * insider. Convenience Store His analysis of Soviet politics and for¬ SPECIALIZING IN RELOCATIONS eign policy is rooted in Mikhail Voslenky’s SERVING CORPORATIONS * PENTAGON THE STATE DEPARTMENT * INSURANCE writings on the Soviet nomenklatura—the INDUSTRY * EXTENDED TRAVEL CONVENIENT METRO LOCATIONS AT: privileged elite that governs Soviet soci¬ ROSSLYN CAPITOL HILL ety. Leonhard suggests that “the main goal TLC Development Corporation GEORGETOWN of the nomenklatura is to secure and extend FOGGY BOTTOM 1700 N Moore St. Suite 714 Arl., Va. 22209 DUPONT CIRCLE its own power,” and this is the driving force behind both domestic and foreign REAL ESTATE * SALES * RENTALS MANAGEMENT [(703)527-44417 policy. Leonhard’s views are similar to Visa and Master Card Honored those expressed by Richard Pipes in Surviv¬ al Is Not Enough. Like Pipes, Leonhard in¬ sists that a lasting improvement in East- West relations can only come about if there are far-reaching changes in the Soviet system. In order to promote such changes, Leonhard urges western governments to differentiate between the nomenklatura hierarchy and the Soviet population. He WANTED believes that while arms control negotia¬ Information leading to Foreign Service Officers tions are essential, they must be accompa¬ known to be owners of condominium units and single nied by efforts "to forge direct contacts with the populations of Communist-ruled family homes held for purposes of investment, tax countries.” shelter and other means leading to independence and Both Pipes and Leonhard believe the So¬ self-reliance. viet Union is facing a profound political and economic crisis and that the West should try to foster a democratic transfor¬ “THE CLARKE LOOP” mation of the Soviet system. There are, Organized by and for the investor, and others who however, serious differences of emphasis which lead Leonhard to rather different prefer the boutique to the warehouse. The “Clarke conclusions than Pipes. First, Leonhard Loop” has it all: a “market-within-a-market”, a net¬ sees a number of possible outcomes to the work of the likeminded buyers and sellers, short-term, Soviet crisis and sketches a full-range of (while you’re overseas), long term. A professional, scenarios. Second, Leonhard is more firmly committed to NATO than Pipes. As a re¬ one-on-one relationship with the broker who also sult, Leonhard’s recommendations are owns investment property! Better than MLS, better more cautious, conservative, and sensible. than 12 offices, better than 400 agents. What you get He urges a policy of military strength cou¬ is Good Faith ... Good Will... and Real People. pled with a willingness to continue arms negotiations. He counsels patience in ne¬ gotiations rather than agreements for their £77u>ma& tfleal Estate own sake. He wants a toughening of con¬ 3&/6 Wisconsin' jCoenu&, WW. trols on East-West trade linked to human rights issues, but is skeptical of the alli¬ WasA/cuflon, 0&2OO/f ance’s ability to pursue a strategy of eco¬ fe02j

14 FOREIGN SERVICE JOURNAL human rights through public and private diplomacy, radio broadcasts, and expand¬ ed people-to-people contacts. He argues for a stable, long-term policy rather than the oscillation between illusion and de¬ spair which has often plagued the West over the past 15 years. Although he is not explicit, Leonhard has essentially provided a sophisticated de¬ fense of the Reagan administration’s U.S.- Soviet policy. His moderate recommenda¬ tions should sound familiar. They parallel major policy speeches by President Reagan and Secretary Shultz. The book, originally mmm published in Germany, was intended for iSjipi!" Europe but Americans will find much wis¬ dom and good advice in it as well. It is a welcome respite from the “moral equiv¬ alence” and “equilateralism” which has in¬ creasingly infected so much European writing on East-West relations. —ERIC S. EDELMAN

The China Connection: U.S. Policy and the People’s Republic of China. By A. James Gregor. Hoover Institution Press, Stanford University, 1986. $24-50 (cloth) $15.95 When you return home from your assignment, (paperback). you can be confident that your possessions will be in the same condition they were This critique of U.S.-China policy is a when you left...if you left them in the well-documented polemic against the illu¬ care of Guardian Storage. sions that still characterize too much of the Guardian Storage will demonstrate their United States’ wishful thinking about thoroughness, care, and experience, from mainland China. Gregor criticizes Wash¬ the time you call to arrange for moving and ington’s China policymakers, whom he storing possessions until your household is downgrades perhaps too easily, and the in¬ safely packed away. flated “judgments of academics and media professionals that could most charitably be Before you leave for your next assignment, characterized as Sinocentric.” call Guardian Storage; be sure your He argues that U.S.-China policy is nei¬ household is safe until you return. ther consistent nor principled. Rather, he sees Washington’s approach to China as simply a series of ad hoc responses to issues and opportunities. He balances this ap¬ praisal with the observation that “by the GUARDIAN STORAGE, INCORPORATED mid-1980s, professional judgments con¬ OLD WASHINGTON ROAD, WALDORF, MARYLAND 20S01 • TEL. (301) MS-4040 * (WASH. TOLL FREE) S43-SSOS cerning the PRC had become more realis¬ tic, thus facilitating a more reasonable as¬ sessment of U.S. policy alternatives.” Gregor’s critique is a useful counter¬ Coming home—Going overseas? weight to the fanciful notion that commu¬ nist China is strategically, economically, Buy from the and politically significant to U.S. interests Washington area’s largest in Asia. He asserts, perhaps too flatly, that there is little the United States can do AMC about the People’s Republic that would Jeep • Renault materially affect our security interests in ■ Choose from our complete line of East Asia. Dealer 1 4-wheel drive Jeeps, AMC Eagles As more policymakers realize the dan¬ I —plus the new Renault Encore ger of playing the China card against the n COURTESY | and Alliance. Local or overseas Soviet Union, advocates of “enhanced delivery. Diplomatic corps dis- cooperation” with the PRC have turned to AMC • Jeep • Renault I counts. Daily and weekly rentals the potential economic benefits to be | available. Phone or write Chris- 755 Rockville Pike, Rockville, Md. 20852 gained from closer Sino-American rela- . topher Zourdos (301) 424-1700

APRIL 1987 15 tions. The author dismisses this argument just as he derides potential political advan¬ We concentrate on tages. only ONE thing ... Gregor would instead have U.S.-China Managing your property. policy balanced against overall American interests in East Asia and the Pacific. His PROFESSIONAL somewhat angry diatribe, although at times overstated, remains a good antidote PROPERTY to exaggerated benefits from “the China MANAGEMENT connection.” OF NORTHERN —-JOHN A. LACEY VIRGINIA INC. Join our growing number of The United Arab Emirates: A Venture in owners from Athens to Zaire Unity. By Malcolm C. Peck. West view Press, 1986. $26.50. „,, who trust the management of “ their properties to PPM. Pro¬ fessional service with a per¬ The United Arab Emirates is a coherent and sonal touch. carefully researched account of a wealthy 16-year-old nation where foreigners out¬ Discounts on appliances number nationals by four-to-one; where and more! Monthly comput¬ few cultural or historical traditions distin¬ erized statements. guish the country from its neighbors; and where the inhabitants do not have even a 5510 Cherokee Ave. standard name to call themselves. (The au¬ Alexandria, VA 22312 thor calls them "Emirians,” a far more rea¬ 703/642-3010 sonable appellation than “Trucial Coast¬

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16 FOREIGN SERVICE JOURNAL SHOP IN AN AMERICAN DRUG STORE BY MAIL! AUTHORIZED EXPORTER An ice cream soda is one of the GENERAL ELECTRIC few items we cannot mail. Drugs, CLIPPINGS -U.S.A.- cosmetics, sundries mailed to every coun¬ try in the world. We maintain permanent Blaming the Pros GENERAL ELECTRONICS family prescription records. SEND NO “{In a Washington speech, Senator Jesse] INC. MONEY — pay only after satis¬ Helms (R.-North Carolina) relentlessly at¬ factory receipt of order. tacked the State Department. He accused REFRIGERATORS • FREEZERS it of abandoning the principles of represen¬ RANGES • MICROWAVE OVENS tative government and of being ‘in the AIR CONDITIONERS • DRYERS hands of the elite that resents the Ameri¬ WASHERS • SMALL APPLIANCES can people’ as well as their ‘elected repre¬ AUDIO EQUIPMENT • TELEVISION sentatives.' DISHWASHERS 'TRANSFORMERS “Helms said the inspirational foreign policy vision set forth by in his 1980 presidential campaign ‘some¬ Available for All Electric Currents/Cycles where., .sort of fell by the wayside,’ and he blamed the resurgence of the ‘so-called Immediate Shipping/Mailing professional diplomats’ in the State De¬ From our Local Warehouse partment for its demise. He noted that ‘a few things were accomplished in the pre- We Can Also Furnish Morgan Pharmacy™ [George] Shultz days—that’s before the Replacement Parts for Reaganites were completely obliterated 3001 P Street, N.W. Most Manufactures from the State Department. Washington, D.C. 20007 “ ‘The problem is that the same old crowd is back in control again, the crowd SHOWROOM that runs things no matter which party's in General Electronics, Inc. the ,’ said Helms. The sena¬ 4513 Wisconsin Avenue, N.W. AFSA Elections tor scorned the elitism of State’s ‘Estab¬ Washington, D.C. 20016 lishment’ diplomatic corps: ‘The foreign Tel. (202) 362-8300 Committee Notice policy process, in their judgment, is sup¬ TWX 710-822-9450 GENELECINC WSH The Elections Committee is posed to reside with them and them alone. You see it every day in the arrogant testi¬ planning to sponsor campaign mony of these people who come up from meetings in late April to permit Foggy Bottom. They don’t even know members, at least those in they’re being arrogant.’ the Washington Metropolitan “Helms, who is highly critical of the w n area, to hear directly from can¬ State Department’s and CIA’s role in push¬ .2 5 ing Adolfo Calero out of the political lead¬ didates on issues of interest. o ® ership of the contras, said, 'a lot of people Details remain to be worked don’t know that the CIA is an arm of the cr = 1 out, but at the moment sepa¬ State Department. They think it’s some « o o o> rate meetings for the candi¬ independent agency, conservative and so u_ o> zo c o dates for the positions of forth, but bear in mind that the CIA is the oo operating arm of the State Department.’ Q. -1 President and Secretary are 3 < If Peter LaBarbera in the Washington Inquirer, < £ envisaged, with the possibility O jr ® February 27 o **■ Q. O ffl of meetings for other candi¬ N dates. Notices will be sent to x UJ ® O i- cr CO o Metropolitan area members. Closing Consulates LL o 0) xj Should any questions arise, z ~ c “Budget woes forcing the State Depart¬ Ul 05 00 please write the Committee ment to shut down seven U.S. consulates CO co CO W ® at 2101 E Street NW, Wash¬ this year, five of them in Western Europe, Ul ill tr o'« ington, D.C. 20037, or call are likely to result in a longer 'hit list’ of a »_ -O 338-4045. _ _ , potential closures, officials say.... < o C. Robert Moore “Administration officials said as many z < 81 Chairman as 40 of the approximately 250 missions and embassies abroad will be closed or con-

APRIL 1987 17 solidated with others in the future because of financial restraints — The Foreign Service Club “The basic reason for the closures is a is now open evenings for sharp reduction in the money available to the State Department for foreign oper¬ Dinner and Happy Hour ations, officials said. The department has requested an additonal $1.32 billion this with free hors d'oeuvres year, but lawmakers have warned Shultz Monday - Friday, 3:30-7:00 p.m. that the chances of getting that amount are almost zero.” Open Saturday for dinner 5:30-9:30 Jim Anderson, United Press International, For reservations call 333-8477 February 2 The American Foreign Service Club Deep Trouble 2101 E Street NW, Washington, D.C. 20037 “For a black man to become a U.S. ambas¬ sador to any country at all is an extraordi¬ r nary accomplishment. Perkins did that by Rl/RnRHRyRO 'AJMIM 'R " t H R n R becoming ambassador to Liberia. And ORDER ANYTIME BY MAIL now, at age 58, Perkins has assumed one of and get our special 20% discount on all prescriptions the highest diplomatic posts the United You have credit with us; order all your t States has to offer. He is deeply proud, but drug items from us and pay upon receipt * he is also in deep trouble, because the post is in South Africa. You can always rely on us for fast, efficient service “Ed Perkins is a black emissary to a Satisfied customers all over the world. white racist regime; he represents a presi¬ We are anxious to service you dent whom many of his fellow black Americans dislike and a policy many find D COLUMBIA PLAZA PHARMACY n K 516 23rd St., NW n morally bankrupt. He may not be able to g Washington D.C. 20037 Telephone (202) 331-5800 g war-game his way out of this one. And he is alone, fresh out of political allies.” Juan Williams in the (RgRHRflRgRQ R ^ H R \Z R □ R " R }{ R g R ,D R Washington Post Magazine, March 1 APPLIANCES FOR WORLDWIDE USE Embassy Row “From a U.S. ambassador’s impossible MANHATTAN ELECTRIC dream in 1934 of duplicating Monticello on the outskirts of Moscow, State Depart¬ 212-869-6699 ment officials have now reached the point 21 W 38th Street, N.Y., N.Y. 10018 where they’d just like a new embassy building sometime this century. PHILIPS TV “What they have...is an unfinished, GRUNDIG VCR crumbling concrete shell loaded with A.E.G. STEREO KGB electronic bugs installed by Soviet CALORIC APPLCS. construction workers. Though it may nev¬ BLACK & DECKER POWER TOOLS er be fit for human habitation the Moscow DIRECT FACTORY SHIPMENTS embassy has already amassed a cost overrun exceeding $100 million. “The State Department cheerily pre¬ dicts occupation of the new embassy by WASHINGTON, D.C. BOUND? 1989- But congressional critics point out that the unfinished structure is being checked over by National Bureau of Stan¬ DRIVE A BARGAIN dards experts. If they find that Soviet workmanship is below par, the whole RENT-A-NEW CAR building may have to be done over." from $19.95* per day Jack Anderson, March 3 Ideal When Shipping POV or on Home Leave ‘Economy car, subject to availability. Monthly rates lower. Immune Deficiency FREE PICK UP AT NATIONAL AIRPORT & METROS “It is clearly unconstitutional for a foreign 683-6400 diplomat to exercise his diplomatic immu¬ 2850 Jefferson Davis Hwy., Arlington, VA 22202 nity when accused of injuring an American citizen here. Under the 14th amendment,

18 FOREIGN SERVICE JOURNAL citizens are guaranteed the right to a jury trial and ‘equal protection of the law.’ U.S. citizens injured by foreign diplomats are FREE SQUASH* denied these two basic constitutional rights. I would hope the next American MEMBERSHIPS FOR harmed would file suit to test the constitu¬ tionality of immunity. AFSA MEMBERS "Although it is argued that we must grant diplomatic immunity to insure the safety of Americans abroad, its existence didn’t prevent Iran from holding U.S. dip¬ lomats hostage. Until the Constitution is amended to allow it, diplomatic immuni¬ ty will remain unconstitutional.” John B. Holway in , March 2 L’Amour AFSA members can now play squash at the Capitol Hill “I found my first weeks of French language Squash Club without paying any membership or initiation training [for the Canadian Foreign Service} fee. By simply showing your AFSA membership card, you will a little difficult because I was pretty rusty. As I was discussing this one day, an oblig¬ pay only the court fees at Capitol Hill's most luxurious fitness ing personnel officer happened to overhear facility. Located only a block from the Capitol South Metro me and suggested that I needed a French- stop, the Club also offers free use of changing rooms, showers, speaking lover. I told him I was working and saunas before and after playing squash. *There is a $20 on that but it wasn’t easy to find one. annual processing fee; some restrictions apply. ‘Yes,’ he replied after a moment’s thought. ‘It’s too bad. It’s just not a service we offer Capitol Hill Squash & Nautilus Club here.’ ” Bout de Papier, Winter, 1986 214 D Street, S.E. • (202) 547-2255 French Justice “The wife of an American military attache FOREIGN who was slain here [Paris] in 1982 testified SHOPPERS today that she had given the French police The Ultimate Service a lead in the case that they failed to pursue. From Argyles to Zippers . . . . The woman, Sharon Ray, testified at the or whatever you’re missing or wanting, we will buy, pack, and ship to trial of Georges Ibrahim Abdallah, who is you. We’re the biggest “catalog” in the United States; because we’ll find considered a founder and leader of a terror¬ ist group called the Lebanese Armed Revo¬ anything you want and send it to you, properly packed and promptly! lutionary Faction. He is accused of having Our services featured in Washingtonian magazine, March 1987. Please planned and ordered the killings of Mrs. send for an order form and ask about our Flower Power Plan. Ray’s husband, Lietenant Colonel Charles FOREIGN SHOPPERS R. Ray, in January 1982. [He was later Suite 703, 1510 N. 12th St. found guilty and received a life sentence.] Arlington, VA 22209 ...“The French lawyer for Mrs. Ray and the United States government, civil plain¬ tiffs in the case, also accused the police of TELEX: 7101104004 (301) 251-6600 failing to investigate Colonel Ray’s killing FAX: (301) 294-8584 (703) 671-5757 thoroughly and said the French secret ser¬ vice had withheld pertinent information REX R. KRAKAUER because of ‘other national interests.’ Attorney at Law “Both Mrs. Ray and her lawyer...im¬ plied that for complex political motives Suite 1407 the French authorities have been reluctant 51 Monroe Street to press the case against Mr. Abdallah. Rockville, Maryland 20850 Mr. Abdallah is also charged in the at¬ tempted murder in 1984 of Robert Onan Providing representation for the special legal problems Homme, the U.S. consul general in Stras¬ encountered by Foreign Service Officers living abroad bourg, who was shot several times but sur¬ vived.” Paul Lewis in , Please write, telex or fax for further information February 25

APRIL 1987 19 BUY 10-25-50

- a challenging academic program SELL in an atmosphere which fosters integrity, responsibility and creativity Foreign Service Journal, April 1977: “In 1972, the first official statement on INVEST wives.. .defined wives as private persons SANDY SPRING and was for many a much-needed initial FRIENDS SCHOOL step in changing the role of wives in the Ed Joyce Foreign Service. The fact that they are pri¬ Retired FSIO vate persons and that this is acknowledged LICENSED IN •BOARDING grades 9-12 *DAY grades 7-12 *CO-ED is important to most wives However, in •ACCELERATED academic curriculum ‘QUAKER values VIRGINIA •SMALL classes -ADVANCED placement courses quite rightly stating that wives, as private •ENGLISH as a second language -SEMINARS •FINE ARTS & Sports programs -INDEPENDENT studies persons, were no longer to be mentioned in •135-ACRE campus their husbands’ efficiency reports, could not be expected to do anything, and did SWOURT not have an obligation to help one another, - We value and welcome the diverse re¬ the directive inadvertently helped create or PERRON ligious, ethnic and cultural origins of illuminate as many problems as were our students and faculty. solved One of the results of the 1972 CREALTY M statement is a growing sense among many V-,NC- ^ wives that in relation to the Foreign Ser¬ 6257 Old Dominion Dr. (301) 774-7455 vice, they are now non-persons.” McLean, Va. 22101 16923 Norwood Road Margaret Sullivan Off: 821-8300 Sandy Spring, MD 20860 Res: 821-2109 Foreign Service Journal, April 1962: “In actual fact, the specialist and the gen¬ eralist are not two distinct and antithetical quantities. The difference between them is VOLVO not sharp, but subtly graduated. The spe¬ INCOME TAX Factory-Set Diplomatic Discounts cialist and generalist are parts of the same system and must blend into each other. Preparation and Advice U.S., European, or Overseas Specs Overseas and Domestic Deliveries Indeed, specialization itself is a graduated continuum running from increasingly in¬ T.R. McCartney (ex-FS), E.A. KELLY COGHILL tensified mastery of a narrowly defined Toni Cooper, E.A. craft, at one extreme, to a kind of structur¬ DIPLOMATIC SALES SPECIALIST al specialization at the other extreme, the Business Data Corp. dbDon Beyer Volvo latter being defined in terms of organiza¬ PO Box 1040 tional control and responsibility. The first 1231 W. Broad Street Lanham, MD 20706-1040 Falls Church, VA 22046 type may be called craftsmanship. The sec¬ ond is specialization in responsibility (301) 731-4114 (703) 237-5020 within the chain of command ” Norman B. Hannah

HAD A BOOK Foreign Service Journal, April 1933: !/ Call for any “You err most grieviously in believing that PUBLISHED RECENTLY? your worthy father, my humble self, or any Icurrentbook The JOURNAL is starting a new sec¬ other representative abroad enjoys 'being • Amex, MasterCard, Visa or check. tion, “By Our Readers,” which will • We ship immediately, anywhere in give a short description of books bored by asinine correspondence!’ It is a the world. • Gift wrapping available. published by our Foreign Service slur upon the corps diplomatique which I L • Mail orders welcome. readers. If you have had a book resent most heartily. That we grow accus¬ published recently, send us a copy, tomed to being bored and to hearing from including price, publisher, and date the A.C. I am willing to grant you. I will of publication. even go further and admit that I sympa¬ Mail to: thize with those helpless specimens of hu¬ Book Review Editor manity who find their sole joy in writing FOREIGN SERVICE JOURNAL dreary letters to overworked and under¬ 2101 E Street, NW paid consuls.” Washington, D.C. 20037 E. Bedloe

20 FOREIGN SERVICE JOURNAL The consul was publicly rebuked by Swiss but that she had violated no laws. The government officials for his allegations, report also said that Whittlesey accepted according to the Nation article. contributions to the fund “when it was After the problems with the embassy clear that her chief fundraiser [a private fund surfaced early last fall, North made friend] was promising special treatment to DESPATCH telephone calls to Whittlesey in Bern. At those contributors.” The fund raiser, Fred the subcommittee hearing, the ambassa¬ H. Gottforcht, wrote Whittlesey that the dor insisted that the calls were merely per¬ donors could stay at her residence in Bern. sonal and that she had not been involved in The report went on to note that “in certain raising money for the contras. She de¬ respects, it appears that Ambassador Faith & Charity III clined, however, to answer questions in Whittlesey viewed the money made avail¬ the public hearing about whether the CIA able to her through this fund as an aug¬ The State Department issued an order end¬ station chief in Switzerland had talked to mentation of her personal income rather ing the use of private representational her about actions concerning the secret than augmenting her official representa¬ funds in January, a result of problems with Swiss bank accounts used to transfer funds tional allowances.” Among the purchases the private fund at the embassy in Bern. from Iran to the Nicaraguan resistance. were items such as a hairdryer and an ice Ambassador to Switzerland Faith Ryan In a related matter, Committee Chair¬ cream maker. Whittlesey earlier had been cleared of any man Dan Mica (D.-Florida) opened the One of the beneficiaries of the fund was illegal actions in her use of the $80,000 hearing by accusing Whittlesey of orches¬ Attorney General , who was fund in a report issued by the Justice De¬ trating “pressure to cancel this hearing” entertained by Whittlesey when visiting partment {DESPATCH, November, Janu¬ from Cuban-American contra supporters Bern. In the Justice Department investi¬ ary], in the representative’s district. “I resent gation of the fund, mentioned earlier, Then in March, the House Subcommit¬ the kind of calls that indicate that this is a Meese had overturned the finding of a jun¬ tee on International Operations held hear¬ vendetta and that this hearing should be ior investigator, who had recommended a ings on Whittlesey’s use of the fund and stopped," he said. Representative Peter H. special prosecutor be brought in. In his other of her activities at post. In particu¬ Kostmayer (D.-Pennsylvania) also accused interview published in this issue [see page lar, the subcommittee questioned the am¬ the ambassador of trying to “intimidate 22], Mica criticizes the attorney general bassador on her efforts to promote the the chairman of this subcommittee.” for becoming involved in the case. “I feel Nicaraguan contras and her relationship to Whittlesey responded that she had simply that the intervention on the part of Mr. , the former National Securi¬ called an old friend in Mica’s district to Meese was improper, and therefore, I ty Council staff member who reportedly seek help in arranging a meeting with the think the whole thing is tainted There ran the covert war from the White House. chairman. In answering questions about wasn’t even a deference to propriety, He was a colleague when Whittlesey why she had not gone through normal which leads me to question the whole ap¬ worked there. channels for her request, she said that no proach.” When Whittlesey was given the ambas¬ one would be up in Washington at the In a General Accounting Office report sadorial job in 1985, she fired the incum¬ time she made the call—Kostmayer coun¬ on embassy private representational funds bent public affairs officer and then rejected tered this by pointing out that it was actu¬ released in March, the office investigated three Foreign Service applicants because ally 3:29 p.m. Eastern Standard Time— eight such funds beside the one in Bern. they supposedly lacked expertise on Cen¬ and that she couldn’t remember the num¬ The ambassador in Vienna, Whittlesey’s tral America policies. She then hired a for¬ ber of the State Department’s 24-hour former White House colleague Helene von mer associate, Robert Reilly, despite the switchboard. She also said she didn’t want Damm, spent $13,000 from the private fact that he had earlier been demoted by to make the Marine guard on duty at the fund to take 400 guests on a “friendship USIA for steering funds to extreme conser¬ time look up the switchboard’s number. cruise” on the Danube. Von Damm also vative organizations run by his graduate According to a congressional source, used the fund to entertain Meese at the school friends. Reilly may have had the however, Bern embassy phone records opera when he was in Vienna, and on an¬ requisite expertise—he had been a Central show that Whittlesey placed a call through other occasion purchased 10 pewter bowls America expert at the Heritage Founda¬ the Capitol Hill switchboard at about the from Cartier for more than $1000. Von tion—but USIA Director Wick specifical¬ same time as she called her friend in Mica’s Damm was the first ambassador to set up ly warned the ambassador against hiring district. such a fund, an arrangement that initially him. (Reilly’s father donated $5000 to the Also at the hearing, Director General won State Department approval. Bern gift fund at about the same time that George Vest related a story in which the Von Damm left the Vienna post last the son arrived at post, but Justice deter¬ ambassador requested that he make a par¬ year. She was replaced by Ronald Lauder, a mined that there was no relationship be¬ ticular personnel appointment. Whittle¬ former executive vice president of Estee tween the gift and the job offer.) sey then threatened to call “my friends in Lauder, Inc., and former chairman of its Reilly and Whittlesey “initiated a full¬ the White House, the Heritage Founda¬ international operations. In May 1986, his blown propaganda effort on behalf of the tion, and the Senate. ” Vest told the JOUR¬ mother donated $150,000 to the embas¬ contras and in opposition to continued NAL that he countered, “I understand that, sy’s private representational fund. The de¬ Swiss development aid to ,” ac¬ but I’m not going to do what you are ask¬ partment returned the money in October, cording to Mark Schapiro and Eric Burnan ing, and that is that.” She dropped the apparently in anticipation of banning such writing in The Nation. The assistance to¬ issue and never brought it up again, Vest funds three months later. taled $2.5 million a year. The U.S. consul said. in Zurich meanwhile was showing a slide The subcommittee issued a report dur¬ DESPATCH relates news of the Foreign Service presentation to Swiss officials that main¬ ing the hearing that concluded that the and the foreign affairs agencies. It is written by tained that an aid project financed by Bern ambassador had exercised “poor judg¬ the editor and does not necessarily represent the was in reality a Sandinista military camp. ment” in her management of the gift fund views of the Association.

APRIL 1987 21 An Interview with Daniel Mica

MONEY & MANAGEMENT: FOREIGN AFFAIRS OVERSIGHT

F THE BUDGET was a big issue last year, it will be a would blame someone in the administration at the I highest level: either the president, the vice president, gigantic one this year. The State Department and the other foreign affairs agencies have already launched a or some of the other top-level people in the White campaign to protect their fiscal 1988 budget requests, House and intelligence community. It was they who but early statements from Capitol Hill indicate that it will undercut the State Department in this, who acted be a hardfight. Many representatives and senators, alarmed against the advice they were given by State. What by the cuts proposed in domestic spending, are not eager to went on was not appropriate, and had State been spend significant amounts on foreign affairs and defense. given the lead, if anything had been done, it would At the center of this struggle will be Representative Dan¬ have been done in a more diplomatic way. iel A. Mica, a Democrat representing Florida's 14th dis¬ trict. AJ chairman of the House Foreign Affairs Interna¬ Looking beyond this one incident, and at the tional Operations Subcommittee, Mica is responsible for management of foreign policy during the past keeping tabs on the management and budgeting of the foreign few years, do you think that the State Depart¬ affairs agencies. His subcommittee, for example, is likely to ment has played an effective role? Has it taken a play a leading role in framing the international affairs leadership role? authorization bill that will eventually go to the House floor, The State Department has taken the leadership role and he was a member of the Inman commission on diplomatic to the extent that the president wants it to, and that is security. He has held hearings on such topics as private all you can ask of a department where the chief officer representational funds, the embassy construction program, is an appointee of the president. It could have played a and public diplo?nacy, and the subcommittee also has juris¬ more active and more direct role, and we would have diction over the Foreign Service Act. Mica has been chair¬ had a much more acceptable and definable foreign man of the subcommittee since 1984, when its head at that policy. During the last six years, our foreign policy time, Dante Fascell, also a Florida Democrat, assumed the has not been well defined. In many cases, this has led chairmanship of the parent committee. This year, Mica to diplomatic decisions that are unacceptable, or at joined the Democratic Policy Steering Committee, becoming least controversial among the American citizenry at part of the party’s leadership and ensuring that his views large. will carry even more weight among his colleagues. In January, the editor and senior editor of the JOURNAL How would you reform the way policy has been met with Representative Mica to discuss how the foreign made and implemented in the Reagan adminis¬ affairs agencies are likely to fare on Capitol Hill this year. tration? In particular, will Congress consider the We also asked about how well the agencies are being man¬ role of the NSC staff? aged and about their relationship with the rest of the govern¬ I’m not sure that changes in law are needed. What ment. is important is the philosophical and personal ap¬ proach of the president—the way he handles himself and his subordinates. The current situation will con¬ The recent revelations regarding arms sales to tinue, no matter who is secretary of state, as long as Iran have made it apparent that there are some the president takes the approach he does; that is, pays National Security Council staff members who attention primarily to some very special personal con¬ were engaged in operational foreign policy activi¬ cerns such as Nicaragua, while paying much less at¬ ties, while the secretary of state knew very little tention to other issues until they become crises. about what was going on. Are these proper roles for the State Department and the NSC? What During the last two years, has the State Depart¬ does it say about the overall management of for¬ ment simply been one agency among many on eign affairs in this administration? foreign affairs, or has it been the primary one? My feeling is that it was an improper role for the It has not been the lead agency; rather, it has been NSC and a slap in the face for the State Department. one of a half-dozen agencies or individuals the presi¬ And frankly, if the professionals who dealt in the area dent has used. For example, the president relied very had been consulted, the president might not be facing heavily on Vernon Walters as an ambassador-at-large. the trials and tribulations that are ahead of him now. One could say that he used the State Department But I don’t blame the State Department. Rather, I because Walters was an ambassador, but one could

FOREIGN SERVICE JOURNAL also argue that the president went around the State tee will do as far as the FY 1988 authorization? Department by using one individual to hopscotch all What do you expect to happen later in the appro¬ over the world rather than relying on the capable priations process? If the individuals who are already working in the system. We will start with what we actually approved last professionals What it demonstrates is that the president does not year and go from there. But this year, we will have to who dealt in the have confidence in that system. make deeper cuts in the overall budget. I can’t think area [Iran] had how State can escape some of the responsibility for been consulted, Secretary Shultz has expressed concern that the those cuts. Will the foreign affairs agencies get more the president State Department’s effectiveness might be limit¬ or less than they want? I can’t answer that. But I do might not be ed by the current budget constraints. The admin¬ know that many traditional supporters of foreign as¬ istration’s new budget request contains a large sistance are taking the position that, although they facing the trials increase in international affairs funding over last still agree with it philosophically, when it comes to and tribulations year’s appropriation. Is the new budget a realistic politics, they are willing to hold aid hostage in order that are ahead one? What is likely to happen to that request this to get the administration to focus on the important of him now year? domestic issues. Even people like David Obey(D.- First, let me say that I have a very high personal Wisconsin], who has been a supporter of foreign assis¬ regard for Secretary Shultz. I can’t think of anyone in tance, are saying that if the administration really It is the present administration who works as well with wants its foreign assistance budget, it will have to unreasonable to Congress. He has done a phenomenal job, and I sup¬ take other issues into account. What will actually think that all port him for that, even though we disagree on some happen is still very open, but it doesn’t look good. cuts will be just specific issues. But I always remind myself that he is in one area, part of the administration that is demanding these Isn’t it possible that cuts in international oper¬ such as social very cuts. If the administration is going to demand ations funding will end up costing more than programs. these cuts and demand budget reform but not seek they save if, for example, we lose trading oppor¬ International any new revenues, how can the secretary come before tunities because there are not enough commercial affairs must us and decry the situation he’s in? He says that foreign officers? affairs is not where the administration wants the cuts. That argument can be made for almost every area of expect to take My reply is that this is a democracy, with a Congress the budget: If we cut education, we will pay more its share and an administration, and we have to work together. later with unemployment, retraining, even with It is unreasonable to think that all cuts would be just crime; If we cut health, and thus vaccinations, later Many traditional in one area, such as social programs. International we will have more health problems. On almost every affairs must expect to take its share of the reductions. aspect of the budget, one can prove that cuts will cost supporters of Members of Congress, both Republican and Demo¬ more in the long run. The most important element of foreign aid . . . crat, are not going to rush home with smiles on their this, however, is that the president is taking a hard¬ are willing to faces and say, "I’m cutting your pensions, I’m cutting line position: there will be no new revenues, there will hold it hostage your social security, I’m cutting your benefits, but continue to be budget cuts, and there will be no in order to I’m going to increase foreign aid and State Depart¬ negotiations. If you start from that premise, then the get the ment funding." That’s unrealistic. only negotiations possible are over where the cuts will administration fall. We recently had an interview with Under Secre¬ to focus on tary for Managment Ronald I. Spiers (“Managing What about the supplemental appropriation that important Adversity: The State of State,” February], in State has requested to make up for the low domestic issues which he insisted that the fiscal year 1988 request amount it received for FY 1987? Is that likely to should be compared to the FY 1987 request, go anywhere, or will that just be lumped with rather than the amount finally appropriated. Is it congressional consideration of the FY 1988 bud¬ realistic for the State Department to start from get request? that basis? State probably has a pretty reasonable chance of No. getting some more money in the supplemental. It will be rolled into an overall supplemental bill; that is What do you think the Foreign Affairs Commit- the safest way for money to be moved around right

APRIL 1987 23 now. Whether the foreign affairs agencies will get the We are still working on that. We are going to get amount of money that they want, however, is uncer¬ into FBO and how it's spending money, the imple¬ tain. This may be the Congress that challenges sup- mentation of the Inman commission report and the plementals, but up until now, they have been pretty Diplomatic Security Act, the reorganization of the safe. Usually supplemental have a little of everything State Department on security matters, and the de¬ in them and help everybody a little, so no one tries to partment budget. We’ll probably also get involved in pick on a specific area. the budget request for the United Nations and for the international broadcasting programs. We hope to do One area that has entailed big budget requests more on public diplomacy. has been the embassy-security program. You were a member of the Inman commission and You work with the foreign affairs agencies on involved in the passage of the Diplomatic Securi¬ almost a daily basis. It is often said that the ty Act last year. How satisfied are you with the professionals in those agencies do not know how progress to date on the embassy construction to work with Congress effectively; that they don’t program? In particular, State’s Office of Foreign respond to queries promptly, that they don’t Buildings has come in for a lot of criticism recent¬ know how to argue their own case. A few years ly; do you think that is justified? ago, for example, Under Secretary Spiers ad¬ mitted that State had almost been apologetic in I was unhappy with FBO until about a year ago. putting forward its budget request. What has The jury is still out on how well State is doing right your experience been in working with the foreign now. Initial reports seem somewhat positive, but we affairs agencies? are still receiving sporadic reports of continued prob¬ My general feeling is that it varies from person to lems. If the reports are only sporadic, that’s to be person; some people are very responsive, while others expected, and we will try to correct the problems. But are not. One of the concerns I have about the State if the problems are an indication of the quality of the Department is that some of the career people get too overall operation, then there will be a major shakeup bureaucratic. I guess that happens in all parts of gov¬ in that office, at least if Congress has anything to say ernment, but when there is something urgent to be about it. done, or when Congress is looking for a response, the last thing we want to hear is “fill out this form and let Last year there was a General Accounting Office me call you a week from Wednesday.” Let me give report that was very critical of the embassy con¬ you a personal experience. I was appointed a delegate struction project in Cairo and at a few other to the 40th General Assembly of the United Nations. posts. Do you consider such problems a thing of It’s not a big deal, but each trip to New York was the past? $100-150 each way, along with $20 for an occasional I hope so. If they aren’t, there will be a major meal. It’s been two years since then, and I’m still outcry on Capitol Hill. Another Cairo, and we will waiting for the State Department to send payment on call for heads. some of these vouchers. And if they’re doing this to me, and I’m chairman of the subcommittee, what are Another element of the new security program has they doing to the rest of the people who work in State? been a reorganization of the State Department. A Of course, that’s just a little item, and you always diplomatic security bureau has been created, expect a few complaints, but if this is the way the along with a diplomatic security service, an am- whole system operates, we’re in deep trouble. bassador-at-large for counterterrorism, and even an office concerned with research and counter¬ State’s management is reducing the number of terrorism. Are there too many offices with over¬ people in the Senior Foreign Service and is also lapping responsibilities, or are you fairly confi¬ retiring those, especially FS-ls, whose time-in- dent that the lines of authority have been made class has expired. Under Secretary Spiers has said clearer? that these actions are required by the Foreign We think they have been made clearer. Until last Service Act. Was that what Congress intended? year, I was absolutely convinced that those lines of Partially. I don’t know if the program is being authority were so confused that no one could under¬ carried out with any vindictiveness, or whether State stand the situation, and it was a miracle that we management is going overboard to try to move some didn’t have more problems than we did. We will be political people or some favorites. But yes, there was holding hearings this year to see if the situation has an intent to make it more of a career path, to move indeed been clarified, and whether it is working the people on if they had stagnated at a certain level. We way we intended. But during recent years, the situa¬ did want to do that. We did not want 75-80 percent tion was a disaster, a catastrophe. At one point, a flow of people always locked out of the higher grades. But chart was presented to the Foreign Affairs Committee that’s another area where we will be trying to do some that purported to show those lines of authority. It oversight. The whole situation needs to be looked at literally had the committee laughing in stitches, and and a whole list of questions asked about a career the people who were trying to explain it were getting Foreign Service: who gets where, how they get there, confused. and so on. Also, I now have Mervyn Dymally [D.- California] on my committee. He has expressed a very What subjects do you expect International Oper¬ strong interest in seeing more minority personnel ations to cover in hearings this year? hired in the Foreign Service.

FOREIGN SERVICE JOURNAL As you know, there is a suit by several female No, I don’t think we micro-manage as a general members of the Foreign Service who allege dis¬ rule. There are some areas where we are accused of crimination by the State Department. Do you that—the diplomatic security bill is one. But that bill There was an think the department is doing its job to make the was a trade-off, and one that, at the time, State ac¬ intention in the Foreign Service representative of the United cepted fully. The department said: “If you give us the act to move States? money, you can give the commitments to your fellow people on if Well, I don’t know. I understand some of the congressmen and congresswomen that it will be spent they had arguments about putting a minority or a woman in a appropriately, and you can have the right to review certain country where it would just salve all our con¬ it." That’s the focal point of the micro-management stagnated. But sciences. Sometimes we do that to make a statement criticism, that each new expenditure will be consid¬ we did not want as we are doing in South Africa. But I don’t know to ered a reprogramming, and we will have to approve 80-75 percent what extent this is justified or is part of the good-old- it. That probably is micro-management, but it was a locked out of boy network that’s just exclusionary. trade-off to get the money. Whenever one criticizes the higher the Congress for micro-managing that program or grades During the past few years, Under Secretary programs like it, they have to be reminded that the Spiers has placed a lot of stress on improving money came at a time when funds were being cut State’s management of itself. Yet, we still have everywhere else, both in domestic and other interna¬ I felt that critical reports coming out, such as the recent tional programs. Last year, even the Defense Depart¬ intervention by one on language competence. Are you generally ment didn’t get what it wanted. But members of Mr. Meese [in happy with the way State is managing itself? Congress said, “Yes, you can secure our embassies, the Whittlesey but we don’t want a penny of it to go for frills. We What oversight do you expect in the next year? affair] was want that money to be used for security.” I don’t Let me talk specifically about language—that’s improper. The know if we could have had the program without put¬ something that bothers me. I’m extremely concerned whole thing is about our diplomatic corps when it comes to language ting some very heavy oversight on it. And, if you put tainted. There ability. And my concern and criticism don’t lie just it in the context of Cairo and some of the other prob¬ with the diplomatic corps but with the entire Ameri¬ lems, you can better understand why there is this wasn’t even a can business community and American international great concern in Congress. deference to mentality. We as diplomats, we as businessmen, and propriety we as entrepreneurs, think we can travel the world You mentioned earlier that you might hold hear¬ and do business on an equal basis with everyone else, ings on public diplomacy. There are several new and obviously they should speak English. I’ve only offices in the State Department that appear to be I want to see a seen a summary of that report, but it hits the problem involved with public diplomacy, often with a fo¬ good solid right on the head. We must start training our people cus on Central America. Some USIA personnel attitude, much more thoroughly and broadly in language abili¬ have expressed the concern that their territory is particularly ties. Otherwise, we will continue to have major diplo¬ being encroached on or that they are unclear of from the matic problems. His language ability is probably one what the State Department office is doing. What Commercial reason that Vernon Walters is so successful—along is your understanding of State’s role in this area? Service, toward with all his other pluses and minuses, he speaks about Those people are probably right that they are being assisting a half-dozen or dozen languages fluently. I don’t encroached on, and they are probably right that it is American know if we can say that about anybody else—at least unclear what State is up to—I’m not sure myself what business that I’m aware of—in the State Department. the department is up to. There is a constant turf battle representatives between USIA and State in certain areas, and public Some State Department and AID officials are diplomacy is one of them. I don’t think they will ever abroad now saying that Congress has a tendency to mi- stop arguing over who is in charge, who gets which cro-manage the foreign affairs agencies, notably facilities. It’s built into the system. The two agencies by earmarking funds for particular programs. Do also go at it over the security act, each one concerned you agree with this assessment? that the other isn’t going to push them around. So far

APRIL 1987 25 we’ve been able to manage it, but I think there will you want to do? always be a certain amount of rivalry. As for the I don’t really like to get into the hypothetical. hearings on public diplomacy, we will probably have When I started on Capitol Hill twenty years ago as an some like those we have had in the past, keeping a aide, I found exactly what you’re talking about— focus on examples like Soviet dissidents and Jewry, every person thinks, “Boy, if I had that job, I’d sure and not really on whether State or USIA is more do it differently.” Even now that I’m a member, I involved in public diplomacy. remember thinking that certainly the leadership would know what they wanted to do, but I’ve recently You have recently expressed concern about the moved to our leadership here on the Democratic Poli¬ use of private representational funds at embas¬ cy Steering Committee, and they don’t know either. sies. The State Department has since discontin¬ That’s why Monday morning quarterbacking is very ued such funds. Do you consider the matter difficult. Of course, that quarterbacking is exactly closed? Are you satisfied with the Justice Depart¬ what we do here. We hold hearings and look into ment report on Ambassador Whittlesey’s use of what went wrong when the embassy in Beirut was these funds? bombed, for example. To this day, I have my own No. I plan to hold at least one hearing on this ideas of who acted inappropriately and who should matter. I have felt from the beginning, when we first have been reprimanded and so on. But I wouldn’t— got information that there were improprieties, that it nor do I know any knowledgeable person who should be looked into. When the Justice Department would—say that I absolutely know how this should had its investigation, the report was not unanimous, have been handled. We can recommend and we can and normally that would have resulted in a special have our hearings. Occasionally, there are places prosecutor. The junior investigator felt that a special where you feel strongly enough that you try to change prosecutor was needed, the senior investigator said a law for the future. no, and Attorney General Meese then intervened, deciding not to recommend a special prosecutor. But Are there any other issues regarding the Foreign that very report—the one in which Meese inter¬ Service that concern you at this time? vened—mentioned that he was at functions which Well, the biggest international problem facing the were paid for by a questionable use of those funds. I United States this year is trade, and it is going to get feel that intervention on the part of Mr. Meese was even worse. One of the things I want to see from our improper, and therefore, I think the whole thing is diplomatic community, particularly from our Foreign tainted. Olympia Snowe [R-Maine], the ranking mi¬ Commercial Service, is a good solid attitude toward nority member of the subcommittee, and I have sent a assisting American business representatives around letter to Meese saying that we felt he should have the world. There is nothing that infuriates me more disqualified himself, at least turned over the matter to than to have a business executive come home and tell an associate attorney general. But there wasn’t even a me that they were in a given country and tried to do a deference to propriety, which leads me to question the little business and that the embassy people basically whole approach. told them “that really isn’t our business, we’re not here to help you make money.” At one point I talked Are you satisfied with the way the Foreign Ser¬ to the whole group of commercial officers and told vice Act of 1980 has been implemented? Is it them, “If I find out that you’re doing that, I will achieving what it was supposed to have done? personally line-item your job out of existence.” If we I don’t look at the act and ask whether everything is are going to compete in the world, we are not only going to plan, whether this is the way the State De¬ going to have to pursue governmental approaches, we partment should be running. Generally, I'm pleased. are also going to have to help our business community Specifically, there are a variety of areas where I want in any way we can: with a contact, with a phone call, a to ask some questions, where we may indeed have to pat on the shoulder, anything we can do to be of make recommendations for changes in regulations assistance. That is the case with the diplomatic ser¬ and procedures. But I’m not someone who rushes to vices of those who are now beating our brains out in find a legislative remedy for every problem. If some¬ world trade, particularly Japan, West Germany, and thing needs to be changed in law, then we will do it— some of the other industrialized countries. When I have no qualms about rewriting law—but when the their citizens come and ask for help on a business deal, problem is a matter of regulations resulting from a the red carpets are rolled out. They feel that if their misreading of the law’s intent, then we will press for businesses can get a major contract, it helps them all. changes in the regulation. Incidentally, on the Inman So that is something I’ll be pressing. It is also one way commission, we had 96 recommendations for new the State Department can build that much needed laws, and about 60 of those were settled through constituency among the public. Nothing could serve regulations. I was pleased with that. I guess that if the department better than to have business execu¬ any given law setting forth the operations of an agency tives running around saying, “My company got that or a program were perfect, there would be no need for contract because the embassy put us in touch with the us to do what we do. right person.” Right now, they’re saying, “When we go to the embassy, they laugh at us, they don’t deal Supposing you were put in a senior management with us.” Of course, there are some good reports, but position in the State Department and given a free the bad ones far outweigh the good ones right now. hand to do what you thought was necessary to That bothers me, and I’ll be paying attention to that make it operate more efficiently. What would area this year. D

FOREIGN SERVICE JOURNAL Questionnaire

DISSENT & POLICY: A DESIRE FOR OPENNESS

FRANCES G. BUR WELL

A SURVEY ON Foreign Service attitudes toward policy, almost all had done so at least occasionally. /l dissent has revealed a widespread desire for Only 14 out of the 93 felt that they had disagreed / A a decision-making environment more tol- “rarely” or “never.” When asked how such disagree¬ OL. JL. erant of the exchange of ideas. In the sur¬ ment was expressed, almost all had done so orally, a vey, which was conducted by the JOURNAL, the re¬ majority had done so in a private memo, and a third in spondents lined up strongly behind the need for a a regular cable, as opposed to a dissent cable (multiple formal dissent mechanism and also indicated a belief answers were allowed on this question). Only 9 indi¬ that cables and memos should routinely express policy viduals had used the dissent channel, and only 22 “The professional alternatives. Our readers overwhelmingly rejected the more had ever even seriously considered that method standards for dis¬ idea of a Foreign Service that filled only an advisory of expressing disagreement. Even fewer had seriously sent and disagree¬ role and remained removed from policy arguments. considered resigning because of disagreements over ment should be the At the same time, more than half of the respondents policy. same as for any oth¬ indicated that they had occasionally felt inhibited Despite this apparently frequent occurrence of de¬ er form of advoca¬ from privately voicing opposition to a policy, usually bate, our respondents also indicated awareness of cy—thoughtful as¬ only under certain supervisors or circumstances. Nev¬ pressure against such behavior. When asked whether sessment based on fact and knowledge. ertheless, disagreement with policy was not unusual, they had ever felt inhibited from voicing opposition Ill-informed dissent although it was most often limited to oral discussions to policy in a non-public setting, although only a few and biased reactions and private memos. And, although there was strong considered that the norm, almost half replied that should not be given support for the dissent channel in principle, few indi¬ such pressure had existed under certain circumstances more than their just viduals had actually used it and not many more had or supervisors. A third of the respondents had never due.” even considered doing so. felt such pressure. Half of our sample believed that Some caution must be used in interpreting the they personally had been penalized for expressing op¬ “Formal, profes¬ responses and their validity across the entire Service. position to a policy. When asked how that penalty sionally prepared The questionnaire was self-selecting; that is, the onus had manifested itself, of those who believed they had and composed dis¬ was on the reader to fill it out and return it. Thus, been penalized, half reported a verbal rebuke but very sent should be con¬ sidered an asset to those individuals without strong opinions or with few reported a written one. Half again replied that the comprehensive little interest were less likely to respond. This is true they had been isolated from policy and a third that conduct of foreign of any JOURNAL questionnaire, but this one had an their advice had been disregarded. The most common policy. Habitual dis¬ unusually low response rate. Only 93 questionnaires penalties, however, appeared to be those that da¬ sent should be ex¬ were received and analyzed; this is less than half our maged career prospects: a majority believed dissent plained by the dis¬ usual amount. The reason for the lack of response had led to an unfavorable evaluation report and a senter in special relative to other surveys is unclear. Because such a similar number that it had led to a lack of promo¬ sessions.” small sample is unlikely to be very representative of tions. the entire population, any real statistical analysis of On the topic of how much debate principal officers “A formal dissent the responses to individual questions could be mis¬ should allow, three-quarters of our respondents said channel is a must in our system, but I leading. For that reason, the responses have not been that the inclusion of alternative viewpoints in cables would not antici¬ broken down into percentages, and this analysis should be routine. None of our respondents believed pate using it. How¬ should be considered somewhat impressionistic. that cables should reflect only one view, but one- ever, it must be The survey attempted to assess how members of the quarter opted for including alternative views only there!” Foreign Service feel about disagreement in the policy under extraordinary circumstances. This pattern did process, both in terms of debate before decisions are not change significantly when only principal officers “The functioning of final and in terms of formal dissent from established and office directors responded. But despite their fa¬ government was not positions. The results on many questions were mixed, voring of reports that normally reflected a variety of designed to be but there was consistent support for preserving and viewpoints, when these senior individuals were asked democratic in its even enlarging the opportunities for discussion and how they had handled policy disagreements among operations and can¬ not be effective if it disagreement. Clearly, such discussion is already tak¬ their subordinates, very few acknowledged including is. It is hierarchical ing place to some extent. When our respondents were such alternatives in their cables and memos as a mat¬ in nature and dis¬ asked whether they had ever disagreed with official ter of routine. Slightly more than a majority had sent is an anomaly included such alternative views on occasion, while a and a privilege, not Frances G. Burwell is senior editor of the JOURNAL. quarter encouraged debate within the mission or of- a right. ”

APRIL 1987 27 fice, but allowed only one view to be reflected in pressure or penalty. Every effort, of course, should be cables or memos. Only three respondents had ever had made to resolve differences within the mission. The a subordinate send a formal dissent message. policy of openness is intended to encourage the candid Throughout the responses there was strong support debate which at times may be necessary to reach a con¬ for debate and dissent in principle, but significant sensus on issues. equivocation when considering the practical effects of Between November 1971—May 1973, the director such behavior, especially on one’s career. When asked general established that expressions of dissent were to whether “there should be a formal method of express¬ be handled as in-house documents with limited and ing policy disagreements to the highest level in the high-level distribution, and that Policy Coordination bureaucracy,” almost all agreed (and most did so (now Policy Planning) was to be the “action office.” strongly). Yet, a majority also agreed with the state¬ Thus, the dissent channel was born. In May 1974, the ment that “employees who disagree on policy must be Open Forum Journal was established and began pub¬ willing to run the risk that their careers will be nega¬ lishing alternative policy views. During this time, tively affected” (there was also a significant minority the Open Forum itself became primarily concerned that disagreed). Those who had been office or mission with holding meetings on foreign affairs issues, and directors agreed with this statement more often than reduced its emphasis on presenting policy alternatives those who had not served in such positions. Further¬ to the secretary. more, when asked whether an individual could be Since its foundation, however, there has been spo¬ labeled a dissenter without harm to his or her career, a radic criticism of the dissent channel. As early as clear majority disagreed, with fewer than 20 individ¬ 1971, the New York Times portrayed the infant dissent uals agreeing. Perhaps for this reason, almost every¬ channel as a departmental effort to curb disagreement one agreed that there should be a formal method of and ensure that any debate stays within the bureaucra¬ voicing disagreement without being labeled a dissent¬ cy. There has also been a perception within the For¬ er. But despite this apparent cost, there was little eign Service that using the dissent channel can be eagerness to abandon policy debates. A majority disa¬ risky for an individual’s career—and there are exam¬ greed with the statement that “it is rarely worth voic¬ ples that support that perception [see Kai Bird, “The ing disagreement, since policy will not change any¬ Decline of Dissent,” February 1985]. way.” Finally, there was overwhelming disagreement In 1984, an Open Forum advisory group known as with the idea that “members of the Foreign Service the “Sages” reported on the state of the dissent mecha¬ should not get involved in policy arguments, but nism. The Sages’ report verified many of these criti¬ merely advise on likely effects and implement estab¬ cisms, commenting that Open Forum was not meet¬ lished policy,” with only 8 individuals agreeing. ing its responsibility to generate creativity within the “If you can’t express State Department and that the dissent channel itself your views on for¬ was burdened with “a serious problem—a cynical, eign policy and have THIS SCHIZOPHRENIA regarding the ideal and some would say ‘realistic,’ attitude that perceives the some impact on the practice of dissent is nothing new in the dissent channel as merely a management tool for let¬ shape of that policy, Foreign Service. Several secretaries of state, ting the system vent bottled-up pressures, for provid¬ why join the For¬ starting with Dean Rusk in 1967, have stat¬ ing particular officers who cannot go along with the eign Service?” ed their commitment to a policymaking environment system a ‘last resort’ mechanism for expressing their that encouraged various and creative views and that frustration, without affording these dissenting voices "Responsible dis¬ brought those alternatives directly to the secretary’s a real impact on policy.” sent is best handled in channels, but su¬ attention. In 1973, Secretary Kissinger urged “em¬ To overcome these failings, the Sages group made a periors need to be bassies, and officers within embassies who have differ¬ series of recommendations. These included the fol¬ more responsive to ing views on major issues from those reported by their lowing: that a canon of ethics be drafted to define an alternate views, just colleagues, to make them available to me in the spe¬ individual’s responsibilities, especially when he or she as subordinates cial and controlled channels provided by the depart¬ disagrees with policy; that Open Forum meetings need to be more ment for that purpose.” Most recently, in 1984 Secre¬ again be used to provide alternative policies; that the aware that their tary Shultz said that “an environment where people procedures for handling dissent messages be clarified bosses are not id¬ feel that their thoughts are welcome is going to be.. .a and disseminated; that synopses of dissent messages iots, that there are more productive and creative environment.” be published in the Open Forum Journal; that the Open good reasons for Several secretaries have accompanied these state¬ Forum office be established as a separate entity in the some positions which do not al¬ ments with institutional reforms designed to encour¬ secretariat, rather than continuing as part of Policy ways meet the eye.” age the flow of ideas. In 1967, Rusk announced the Planning; and that the Open Forum chairperson be establishment of the Open Forum panel—previously given expanded access to meetings and materials “Sad but true, dis¬ an informal group of officers—to review alternative throughout the department. None of these was ulti¬ senters, no matter policy suggestions and pass those of merit on to him. mately adopted. how responsible, As a result of the 1970 Macomber report on the man¬ In the end, the Open Forum identified three rec¬ run risks and must agement of foreign affairs, a policy on openness was ommendations as both important and feasible. The be prepared for the added to the Foreign Affairs Manual, which stated in first and most important was the creation of an Open consequences. But part that Forum channel as one more alternative for encourag¬ the department and ing creative thinking, to avoid the negative connota¬ other agencies could Staff members are encouraged to make known their ideas tion sometimes given the dissent channel. This mea¬ do much more to and opinions on operations, management, and all other make responsible activities of the post. Officers who may conclude.. .that sure was rejected. Second was a full-time vice dissent respect¬ they cannot concur in a report or recommendation are chairman of the Open Forum, which was put into able.” free to submit a dissenting statement without fear of practice for one year but eliminated, supposedly for

28 FOREIGN SERVICE JOURNAL budgetary reasons. “It is unfortunate that the Open time.” Others, however, thought the effect of dissent Forum has not been and is not currently given greater was much more ambiguous. As one wrote, “I disa¬ priority within the department, so that the elimina¬ greed with a central U.S. policy during much of my tion of the vice chairmanship could have been avoid¬ career. It damaged my career at times (modestly) and ed,” according to James Wilson, the current chair¬ helped at other times.” man. He points out that one person is kept busy The comments also revealed a variety of approaches full-time running the Open Forum meetings. The to reconciling dissent with the need for discipline. No third recommendation was for an automatic one-year one suggested taking a disagreement outside the gov¬ extension of time-in-class for the chairperson, but ernment; several mentioned resignation as an option that decision will instead be made on a case-by-case if a policy was completely indigestible. As one wrote, basis. This could be a crucial factor, since the pressure “If you disagree, you should ask for a transfer, and for promotions has meant that few Foreign Service there should be an institutionalized channel for doing employees are willing to spend time in a position that this. If you cannot live with a department policy is considered by some to be out of the mainstream (the under any circumstance, then you should resign. ” But incumbent is an AID officer). An election for chair¬ another pointed out that resignation was not eco¬ person is scheduled for this summer, but it is unclear nomically possible for everyone. And, as our re¬ how many will run. sponses demonstrated, few individuals had ever seri¬ Regardless of what effects the Sages’ recommenda¬ ously considered resignation, despite the fact that tions may actually have, what is most important is disagreements were relatively common. Instead they how the dissent process is perceived to work by indi¬ sought ways to cope with their dissent within the viduals in various offices and posts. The comment system. As one wrote, “I frequently disagree with the section of our questionnaire casts some light on the ideological bent of specific foreign policies of the Rea¬ concerns that face members of the Foreign Service as gan administration. These disagreements, however, they attempt to reconcile their disagreement with have been more those of a U. S. citizen than of an FSO, particular policies with their responsibilities. since many of the issues have been outside my realm of Several of our respondents pointed out that dis¬ expertise or responsibility.” agreement over policies is only part of the problem. Perhaps most valuable, however, are the comments They saw the treatment of dissenting views on analy¬ about the role of dissent in constructing foreign poli¬ ses as an equally important problem. As one respon¬ cy. One respondent wrote that because the State De¬ dent wrote, “The dissent channel is not structured in a partment does not tolerate dissent, “the most outspo¬ way to deal with disagreements centering on the na¬ ken critics of our policy are people outside the Service, ture of events in a foreign context rather than policy such as academics, retired FSOs, and politicians.” itself.... Since policy flows—or should flow—from Another noted what he saw as the State Department’s the ‘facts,’ disagreements over the latter are often as lack of influence, and asked, “why go to the trouble to important as disagreements over policy.” dissent?” Others, however, saw dissent as playing a “Policy objections, Whether the specific disagreement is over policy or useful role in improving policy decisions. “The way a if raised and then an assessment, however, it was clear that individual dynamic organization handles dissent or policy dis¬ dropped when over¬ supervisors did much to determine whether that dis¬ agreement in a constructive way is to invite a variety ruled, are generally sent was constructive or not. As one individual com¬ of ideas at every level. If [disagreement is] entertained overlooked. Howev¬ mented, “My embassy’s management changed a little at lower levels, policy is likely to be more relevant and er, prolonged dis¬ over one year ago. Since then, the degree of openness ultimately effective. When indications of dissent only sent arouses greater and collegiality has declined markedly, and post man¬ come toward the end of the policy process, the process antagonism and af¬ agement has made clear that dissent is unwelcome. is flawed, inefficient, and least amenable to change.” fects careers.” This indicates how great is the influence of individual Dissent has long posed a dilemma for those in the “We have a duty to senior managers toward issues of openness and dis¬ Foreign Service. Often attacked as disloyal by outside give our best rec¬ sent. ” Another wrote, “I had the good fortune to serve political forces, the Service has also faced pressure to ommendations and under principals—career and non-career, at home and conform from inside its own ranks. Although the honest advice but overseas—who were the best we’ve got. If your dis¬ reaction of some individuals has been to define their not to determine sent were valid, they were capable of changing their role as providing advice while remaining removed policy.” minds or passing the question along.” Another ex¬ from policy, this has clearly not been a satisfactory panded this point to an entire administration. “In a alternative for all, as witnessed by the majority of our "I am convinced a rigid, highly political administration such as Rea¬ respondents who rejected such a limited role. In fact, policy disagreement gan’s,” he wrote, “dissent is useless and harmful to the Sages report states that kept me in old class reporting officers.” 3 for seven years. Traditional formulations such as “candid advice Only winning a prior to policy decisions; unquestioning imple¬ grievance that mentation thereafter” or “vigorous debate inside cleansed my file res¬ THE IDEA THAT dissent could harm an indi¬ the department; a single, unified position outside cued my career.” vidual’s career appears to be widespread. of it” are no longer adequate guidelines for conduct One respondent who had dissented from in the diffuse and ill-defined foreign policymaking “Once a policy deci¬ sion has been made, policy in Central America was subsequently structure today. given a consular assignment for which he had not bid, members of the nor was he consulted. Another wrote, “While one can Foreign Service Clearly, the dilemma of how to resolve disagreements should implement dissent on tactics, disagreement on policy can end a regarding policy and assessments with the responsi¬ this policy, al¬ career. Disagreement is reflected in EERs, or by su¬ bilities of being a public servant is far from re¬ though they may pervisors who remind you how near it is to EER solved. Q disagree with it.”

APRIL 1987 29 LIFE & LOVE IN THE

Yes, it’s April again. Time to file your taxes. Time to get your EERs in. But it’s also time for our annual look at the humorous side of the Foreign Service. This year the captions have been written by a member with 30 years’ experience in the State Department, who has chosen to re¬ main anonymous. After you read them, you may under¬ stand why.

“I can’t help thinking the Selection Board system is be¬ coming a tad rigid. ”

“When I asked you to back up your statistics, that's not what I had in mind. ”

“Are you sure this is the way I’m supposed to present my credentials. ” FOREIGN SERVICE

“Ambassador and Mrs. Snively profoundly regret that they cannot accept due to a previous engagement. ”

“Darling, being named Control Officer for the congressional wives group is an honor!”

“Let us fly! The tandem-couple regulations are now in place!”

“I'm sorry, Miss Jones, but that Priority Cable must go out tonight

APRIL 1987 Helping a farmer under the hot sun of Somalia. According to the author, many aid projects—from many donor countries and institutions—do not take into consideration local aspirations, customs, and mores.

ASSISTING AFRICA

Africans should determine what is best for their own development—and that means the donors should change their way of doing business

JAMES F. ENTWISTLE

FOREIGN AID IS taking it on the chin in the by the reductions. And, it seems likely that at least budget process. The big losers in this triage some of these problems will also surface in those na¬ will not be Israel, Egypt, and Turkey but the tions of genuine strategic interest to the United poor African countries—those that don’t have States. Of course, the United States is not the only U.S. military bases or similar ties, and that often feel donor at fault. The aid programs of many others— overlooked by the West except when a natural disaster both countries and multilateral institutions—exhibit strikes. Even within Africa, U.S. funds most likely many of the same problems. Some of the worst exam¬ will be concentrated on countries of strategic interest ples of ineffective assistance projects are run by inter¬ like Kenya, Liberia, and Zaire. This cut in the money national agencies specializing in development, and available for aid creates a certain awkwardness in U.S. some of the best examples are sponsored by AID. relations with the poorest African countries, as Secre¬ Nevertheless, the average U.S. project in a very poor tary Shultz probably discovered on his recent trip to country demonstrates enough failings that the process Africa. Perhaps the hardest task in diplomacy is to as a whole should be reexamined, for both American convince another country of its importance to you and other donors. while the tangible evidence of that importance is di¬ Such a reexamination is especially urgent in light of minishing. the rapidity with which Africa is falling behind the Such inevitable political fallout and awkwardness rest of the world economically. Countries whose eco¬ notwithstanding, cuts in U.S. foreign assistance to nomic potential once seemed limitless now are bur¬ the poorest African countries do not have to mean a dened with debt, dependent on food imports, and decline in the quality of that aid. U.S. assistance to appear helpless to deal with political instability and these countries has, by and large, not been particular¬ declining nutrition. A reexamination of western ap¬ ly effective or efficient. The reduction in aid levels proaches to foreign assistance is also timely in light of could provide an opportunity for a healthy re-exami¬ the growing determination to take a fresh look at nation of the U.S. approach to foreign aid, particular¬ Africa’s problems. The World Bank’s now-famous ly regarding the least-developed countries of the 1981 Berg report, which blamed inefficient African world. Moreover, the lessons learned could continue economic policies, was the first move away from the to ensure a more effective U.S. presence in Africa in prevailing viewpoint, which sought the explanation the future when aid levels have risen again. for Africa’s economic failures among external factors Admittedly, my observations are based on the ex¬ such as the colonial legacy and levels of donor aid. periences of countries that have not been a high prior¬ Last year’s special U.N. session on Africa illustrated ity to U.S. policymakers. But it is precisely these this trend with the admission in its final declaration of countries that are likely to be most seriously affected the need for internal policy reform. The fundamental irony of Africa is that the conti¬ James F. Entwistle is a Foreign Service officer who has nent gets less foreign aid than it can use, but more served in Cameroon and Niger. than it can put to good use. Too often, money ends up

FOREIGN SERVICE JOURNAL being spent for purposes other than those intended, or was producing a significant harvest of crops such as not being disbursed at expected rates. Why are scarce cotton and wheat, which normally would have been aid dollars being used so inefficiently and ineffective¬ difficult to grow in the dry environment. Villagers ly? Because, all too often, assistance programs are were assigned plots, instructed on how to best use designed without taking local realities into consider¬ their acreage, and permitted to keep much of their ation. This is particularly true in the poorer, low- produce or sell it to the state. What could be wrong priority countries, where the donor may not have with such a project? The history of the region had gone to the trouble of becoming sufficiently familiar never been taken into consideration. The land under with its particular needs and problems. Moreover, the irrigation had been farmed for centuries by villagers recipient government may not have enough adequate¬ who believed it belonged to them. The land was ly trained officials to deal with the donor bureaucra¬ seized by the government for the construction of the cies and make the recipient’s concerns clear. project, and smaller plots were distributed back to the When a donor is unfamiliar with the specific needs villagers. The villagers also had to pay for the water and situation of a recipient, the assistance program supply. Moreover, they were told what and when to often ends up being based on familiar development grow, and when to water, by the project staff, which theories and concepts that have been applied else¬ in this case was both expatriate and African. Fre¬ where but may not be relevant in this case. After all, quently the produce could only be sold to the govern¬ it is much quicker and easier to replicate what has ment at a price which, after payment of water fees, been done before than to create a country-specific did not yield a profit. Farmers who fell behind on project. This tendency is reinforced by the periodic their financial obligations to the project were thrown emergence of new fads in development circles, which off their plots and frequently reduced to working as are then reflected in the next wave of projects. Hence, fieldhands for their neighbors. Or they worked for the the current fixation with private-sector development, bureaucrats and businessmen from the nearest town even in countries with no private sector in our sense of who had been given plots when the project began and the term, is an obsession that will fade just as surely as who gradually controlled more plots as small farmers did the basic human needs focus of the late 1970s. could no longer pay their bills. A convincing case can be made that the peasants were demonstrably worse off, certainly in terms of THIS TENDENCY TO apply global approaches self-esteem, despite the fact that the project was con¬ means that all too often little attention is sidered a success in development circles. The basic paid to local realities at the village level. reality, overlooked in the planning process, was that Typically, a team of experts is brought in to the peasants in that area already produced enough the country to participate in the project planning food, albeit with traditional techniques they had used process. The team usually consists of an economist, a for centuries. But because the project designers did sociologist or anthropologist, and at least one person not pay adequate attention to local conditions, they with the requisite technical specialty—health or live¬ fell prey to one of the most common and fallacious stock, for example. Such teams are in the country for tenets in the development business: that applying only several weeks, which allows for a lightning- western concepts of modernity and progress to Afri¬ quick trip through the area the project is aimed to can societies is inherently good. help. Rarely do team members speak local languages. Similarly, projects that ignore local realities often Indeed, they may have no previous experience in the exacerbate the general wariness of peasants toward country, since it is often assumed that experience government. There is a longstanding, deep-rooted gained in one country is automatically applicable else¬ fear of and respect for authority in many rural African where in the developing world. societies, stemming from centuries ago and reinforced The results of these “windshield surveys” are pre¬ during the colonial period. Peasants frequently do not dictably general and vague. They are quickly rolled distinguish between donors and governments, and into project-design papers that are dropped off at the view both as working against them. Projects imposed AID office as the team wings off to its next country. from above create the feeling among peasants that Frequently its work requires extensive revision by the development is something done to them, rather than mission members who spend too much of their time with or for them. As their lives are affected by events planning, chaperoning, and cleaning up after such over which they have little control, they become less missions. Anyone who has been exposed to the intri¬ willing to speak up for their interests in the face of cacies and mysteries of a foreign culture knows it is authority. The result is often an increasingly weary, laughable to expect any understanding of local reali¬ resigned rural population that works against the par¬ ties, much less a workable project design, to be devel¬ ticipatory democratic ideal that the United States is oped in such a short time. But these exercises are trying to promote in Africa. viewed as successes in development circles: a paper is Even when project-design teams actually do con¬ produced that can be displayed at future meetings, sult peasants, the results still may not lead to useful and money to cover the team’s expenses has been projects. Peasants, out of traditional hospitality and a obligated. fear of opening up to outsiders who may be from the Such an inexact planning process can result in trag¬ government, will tell outsiders what they think they edy. The worst example I saw in Africa was a state-of- want to hear. Teams come back from their windshield the-art irrigation project (which, fortunately, was not surveys convinced that discussions with peasants were funded by the United States). At first glance, the a ringing endorsement of the team’s ideas. This in¬ project was most impressive. An extensive acreage creases donor enthusiasm during the planning phase, I

APRIL 1987 33 but leads inevitably to frustration a few years later host country before money can be handed over. A when the project bogs down. large health project, for example, might require the It is not only the peasants whose attitudes may host country to start charging for certain services be¬ mislead the project designers. If the planning team is fore assistance funds could be released. An agricultur¬ unfamiliar with local politics, the project may also be al project might stipulate an end to certain subsidies hindered or even completely stymied. On one project, as the condition for a certain level of aid flow. All this for example, a team of American technicians, skilled requires extensive hours of negotiation with host- and eager, was located at the site of a major project, a country officials during the planning stages of a pro¬ day’s drive from the capital. There they sat. They ject and extensive amounts of paperwork during the spent over a year trying to get the project off the life of the project. ground and received little cooperation from local offi¬ The few trained local officials cannot keep up with cials. The team had to have permission to travel out of donors’ demands; the requirements are not met and town to do their work, and that permission was only the money is not released. It is not at all unusual to see rarely granted. The African director of the project projects where obligations run at less than 20 percent threw up a series of bureaucratic obstacles which add¬ of the intended rate. The frustration is tremendous ed to the frustration. both for host country officials, who begin to question To the team members, the truth gradually began to the donor’s good faith, and for the donors, who are unfold. The local government had no interest in the under strong pressure from Washington to move activities the team was trained to carry out. The work money through the “pipeline” by the end of the fiscal would have required extensive contact with ethnic year. Meetings between donors and local officials be¬ groups out of favor with the group that controlled the come dominated by bickering over the management government. Moreover, the project was situated in a of paper flow rather than a real give-and-take on de¬ politically sensitive region of the country, and it velopment priorities. quickly became evident that the local governor had no U.S. assistance programs are especially prone to intention of allowing expatriates to wander around as such self-defeating complexities. This is due to the they wished, surveying peasants. For quite some particularly American trait of seeking the grand solu¬ time, the AID officers responsible for the project and tion and believing that enough money and energy will their superiors in Washington were not interested in solve any problem. In Africa, the result of our zeal is hearing from the team members that the project was large, integrated development projects that attempt not working. This story had an unusual conclusion, to meet virtually all the needs—from health to agri¬ however. Eventually, the problems were recognized culture to housing—in a given area. After a while, and the project closed, an action altogether too rare in these projects take on lives of their own. The original development circles. goals become obscured, if not forgotten. This complexity is mirrored by the structure of the AID mission itself. Development missions suffer from NOT TAKING SUCH local realities into ac¬ the institutional diseases found in all bureaucracies. count also means that donors may overes¬ As the office grows, the mission managers inevitably timate local capabilities for responding to spend more time attending internal meetings, orga¬ various requirements imposed by assis¬ nizing new offices, and adjudicating turf battles. The tance programs. This is especially true in the poorest growth of AID missions has continued despite recent countries, which are likely to have too few trained budgetary belt-tightening, since the work of direct- development officials and too many donors pushing hire AID officers whose positions have been eliminat¬ too many projects. ed is given to contract employees who can be paid out Every donor has separate “conditionality” or per¬ of other funds. And, as in most bureaucracies, work formance requirements which must be met by the expands to fill the time and resources allotted. A task

34 FOREIGN SERVICE JOURNAL Teaching animal husbandry in Liberia.

that required the attention of one employee requires These consultants have a tremendous interest in the attention of two after two are assigned to it, and seeing foreign assistance continue to be disbursed in a thus the second employee becomes essential to the manner that needs their services. After all, most west¬ mission. erners working in Africa live well. Housing is free, U.S. development efforts also suffer from conflict¬ utilities are paid, and hardship differentials are tacked ing pressures on the disbursal of aid. Missions in the onto salary. A generous per diem is doled out to short¬ field are under tremendous pressure to obligate each term consultants. Many westerners find they have year’s allotment as quickly as possible so that an in¬ more professional responsibility and status than they crease (or, these days, less of a reduction) can be could ever hope for back home. And for academics justified for the following year. The most withering working on projects, the research possibilities are tre¬ exchanges between missions in the field and Wash¬ mendous. It is hardly surprising that most consul¬ ington concern not failed or poorly designed projects, tants are loath to bite the hand that feeds them by but slow movement of funds through the pipeline. criticizing projects when they may want to get back Yet this emphasis frequently runs afoul of a con¬ into the field later on. Of course, many expatriates are flicting directive to account for every dime. Congres¬ in Africa for idealistic reasons, out of a sincere desire sional concern over projects whose funds cannot be to do good. Unfortunately, those motivated by altru¬ accounted for and may have, at best, been spent un¬ ism tend to be the most frustrated. wisely, has led to exhaustive recordkeeping require¬ Why do African officials accept projects they know ments. These conflicting directives generate an in¬ will probably not succeed? They have a different agen¬ credible tension in development missions as project da. Frequently, Africans accept doomed projects to officers push to allocate funds while the accountants please wealthy donors who insist on large trendy proj¬ insist on time-consuming accountability procedures. ects. The Africans hope that, despite the flaws in the Laudably, some abuse and fraud has been prevented, project, most of the money will eventually flow into but the disbursal of funds is often hamstrung, and the economy and a number of vehicles and buildings more money than necessary spent on purchases be¬ will be left behind when the project folds. cause of paperwork-verification requirements. In one The priority for African governments is to keep aid project, expensive French watering cans were pur¬ levels as high as possible. Thus, most want as many chased instead of a sturdier, cheaper, local product. donors involved as possible, despite the lack of trained The illiterate craftsman who made the superior local development officials who can interact effectively cans did not provide receipts; the French ones came with the donors. More donors means more projects, from a store that did. which means more expatriates to employ cooks and houseboys, along with more money, vehicles, and buildings. To keep as much money flowing from GIVEN ALL THE pressures against success, why donors as possible, host countries sometimes resist are such assistance projects continually de¬ coordination among donors for fear that redundant signed and funded? One reason is that even programs might be eliminated. But as resources be¬ many bad projects have a constituency in come scarcer, donors are establishing that coordina¬ the United States. Projects, design teams, and evalua¬ tion through donor roundtables and informal ex¬ tion teams are usually staffed by university faculty, changes of information at the working level. graduate students, and Beltway-bandit consulting And so a circle of deceit is at work in Africa. firms. Indeed, it sometimes seems as though African Governments accept aid packaged in projects they development has become a full-employment program know will not work in order to maintain the flow of for academics and consultants. During one year in money; donors push the flawed projects because they Africa, an AID mission I observed handled more than reflect the latest fads or to alleviate the interminable 1000 short-term personnel. pressure from headquarters to move money as quickly

APRIL 1987 as possible. Many African governments use the result¬ much of the money. Once again, enthusiasm was high ing publicity to illustrate to their citizens the interest because the idea was simple and the results tangible. that the most important nations in the world take in These simple projects worked because they did not their country. Western donors can point to aid levels give handouts—the peasants decided what they need¬ as evidence of their concern for African development ed, and worked and contributed from their meager and refer to them when soliciting African cooperation resources. The voluntary agencies helped the peasants in the United Nations and other international fo¬ help themselves. rums. Both sides benefit. Of course, there are losers. To a certain extent the African bureaucrats who find themselves afloat on a IN EXPATRIATE COMMUNITIES overseas, a favorite sea of donor-required paperwork are losers, as are the topic of conversation is the latest foreign assis¬ expatriate technicians who labor on projects in which tance foible: the new vehicles that can’t be re¬ there is little high-level interest after the initial agree¬ paired locally, the “expert” flown in for two ments are signed. But the biggest losers are rural weeks who doesn’t speak the language and has never Africans at the lowest, most vulnerable end of the been there before. After a while, however, it becomes economic spectrum. They rarely see any tangible clear that such examples do not really provide answers benefit from the millions of dollars pumped into the to the puzzle of why aid so often fails to have the continent each year. intended effect. Especially in the poorest African Yet, there are definite development success stories countries, one cannot avoid asking why development in Africa. These successes have distinct characteris¬ dollars have failed to stem the slide into even deeper tics. By and large, they are small projects with specif¬ poverty. Eventually, I came to believe that the funda¬ ic, identifiable goals. Their objectives are long-range mental flaw underlying western development efforts and eschew the American penchant for the quick-fix. is that ideas flow in the wrong direction. As African Moreover, the project designers did their homework: officials resignedly accept projects they know will not local traditions and sensibilities were taken into con¬ work in order to guarantee future aid, they cede con¬ sideration and Africans were involved in the plan¬ trol over their own development. Donors take over ning. the responsibility for ideas and inevitably push the One of the best examples was a reforestation project latest fads and trends. Ultimately, however, only Af¬ in a valley suffering from erosion and threatened by ricans can determine what is best for Africa. encroaching desert. Over the course of 15 years, the To put the responsibility for development back inhabitants had planted rows of trees as windbreaks. where it belongs—with the Africans themselves—the Enthusiasm grew each year as the benefits became United States and other donors must fundamentally apparent in less erosion and more bountiful harvests. change the way they do business, especially with the Selective pruning of the older trees provided a steady poorest African states. The United States in particular wood supply in an area where wood was a dear com¬ must rethink the way it designs and distributes assis¬ modity. Started by Peace Corps volunteers and picked tance, or the coming reductions in aid resources will up by an American voluntary agency with some AID be disastrous. funding, the project was immensely popular. The Each year, instead of pushing project ideas on Afri¬ inhabitants willingly planted the project’s trees and can governments, we should inform them of the then began to replicate the project by planting and amount of funds available. These levels could be based caring for trees on their own. on a number of criteria, including U.N. votes, geopo¬ In another project, an American voluntary agency litical importance, and human rights records. We worked with villagers to install simple wells around should then sit back and wait for the governments to which small gardens could be planted. The agency come to us with ideas on how to spend the funds. provided the expertise, the villagers the labor and Bilateral discussions could then begin to evaluate the

36 FOREIGN SERVICE JOURNAL Providing vaccinations in Ethiopia.

African wish lists. Obviously, not everything pro¬ with the mountain of paperwork required by our cur¬ posed would be funded—no fleets of Mercedes or rent way of doing business. They could spend more paved roads to presidential birthplaces. An extended time in the field, which is what most of them wanted give and take would be needed to iron out the details, to do when they joined AID. making this system more painful at times than the We should also reexamine some things that we current one. But in the end, this approach would have been reluctant to do in the past. For example, we stand a better chance of reaching a useful conclusion. need to be more willing to use assistance funds in We might even be startled to find that the African innovative ways. No one wants to see money used government's priorities do not jibe with the latest inefficiently or diverted to unintended purposes, but development fads or our perceptions of what deter¬ there needs to be more flexibility in spending author¬ mines the quality of life. ity than is currently the case. In a very real sense, aid This would not be a remedy for all that ails foreign is risk capital. Furthermore, many African countries assistance. But the first step on the road to efficient, could use unlimited amounts of money in the form of useful foreign aid must be Africans’ telling donors budget support and debt relief, unpopular topics in about their aspirations, priorities, and needs. After these conservative times. Certainly, such assistance all, a real part of development is learning to set priori¬ should never be granted across the board. But in ties and having the chance to make mistakes and learn selected situations, forgiving debt or providing bud¬ from them. Development dollars must be spent on get support may soon be the only way to help some of African ideas. our most important African allies escape a decline into real poverty. Above all, we need to be aware of the differences WHAT WOULD BE the role of develop¬ between Africans and ourselves. Too often we assume ment missions under such a system? that our lack of familiarity is not a real hindrance. Apart from negotiating with the host And too often, we assume that development involves government after its initial presenta¬ an adoption by Africans of our cultural values along tion of ideas, AID and the other donor agencies with our technology and expertise. We must realize should focus on the things they do well. These include and accept that Africans are in the process of sorting scholarships, which all too often are the only properly through what the West has to offer, culturally and functioning part of large projects, along with aid to technically, and choosing what they wish to incorpo¬ local educational institutions. AID does an exemplary rate into their societies. The results may not be what job of emergency famine relief and should take the we would have chosen, although sometimes they may lead in such situations in the future. And we should seem superficially familiar. The adoption of a western begin to re-examine our reluctance to finance infra¬ idea or technique does not necessarily mean that the structure. Bridges and roads are often valued long corresponding philosophical construct has also been after a well-intentioned integrated rural development adopted. project has faded from memory. AID should also de¬ In the long run, foreign assistance will not be the vote more resources and energy to providing central deciding factor in Africa’s development. It could, funding, in which monies are passed to private volun¬ however, make a contribution if we take time to tary agencies at the Washington level. This allows understand the African viewpoint. In our rush to more freedom of action in the field, and the PVOs remake Africa in our image, we often expect too much have a better chance of achieving concrete results with too soon. We must take a longer term, anthropologi¬ such projects than with large, overly technical under¬ cally based approach so that we can understand Afri¬ takings. Moreover, central funding of such projects can societies and begin to understand their perception would take some of the administrative burden off AID of the present and their vision of the future. Only then officers who now spend the bulk of their time coping can foreign aid play a role in attaining that vision. Q

APRIL 1987 With No Regrets

ID YOU BRING the money?” across the border?” D An American diplomat “It may not be possible. My helpers at k Peter asked. I “Yes,” I said, “but only clears the path to the farm are also going over next week. half of it. You’ll get the rest They’re emigrating to Canada, and I’ll at the railway station when you meet the freedom from probably go with them. You might colonel. He’ll give it to you, himself.” check with your consulate in Vienna. It was late in the evening, and Peter communist Hungary They could tell you if the colonel shows and I were the only customers in the up there. Of course, he might go to the dreary little coffeehouse in the industrial American military headquarters in Vien¬ section of Budapest. We sat in our over¬ na or even to the Austrian police. He coats and sipped tiny cups of black FRED GODSEY could also go to the British or French expresso coffee mixed with barack pa- consulates.” linka, the fiery Hungarian plum brandy, will be at the main Budapest railway sta¬ We shook hands, said good-bye, and I as an antidote against the cool autumn tion on Friday of next week at 12:30 never saw or heard from Peter again. weather. Well over a year had passed p.m. He will have no suitcase, no knap¬ since the end of World War II, but Rus¬ sack—just the clothes that he wears. m sian-occupied Budapest still suffered a Nothing else. He will carry a rolled JpJ , i shortage of heating fuel. Peter, which newspaper in his left hand. I will ap¬ Ws&b-Mis was probably not his real name, was a proach him and ask, in English, if he young Hungarian in his late twenties, knows when the next train leaves for De¬ and he was a smuggler. But Peter was no brecen. He will reply that he does not ordinary smuggler—he smuggled people know, that he is waiting for his uncle to without passports and visas out of com¬ arrive from Warsaw. I will have two munist Hungary to freedom in Austria. train tickets to Magyarovar. A car will He preferred to be called a “guide. ” pick us up there and take us to a farm "That’s okay,” he said. “You’ll please near the Austrian border. We will begin excuse me that I have to charge so much, the walk from there. Make certain that but I usually take three or four people he has sturdy shoes.” each time. Since your colonel insists that “Just one more thing, Peter,” I said, ■ he be the only one, I have to charge as we finished the brandy and prepared more. I also have to tell you that this to leave. “As I told you, this man is pre¬ will be my last trip. I’m staying on the sumably a Soviet intelligence officer. He other side this time—if we make it. It might be an agent provocateur who will try has become too dangerous. The Hungar¬ to alert the Russian or Hungarian border ian political and economic police have guards. Do you have a pistol?” been asking questions about me. Winter Peter was surprised. “Well, yes, I will soon be here, and that also makes have a .38 pistol at the farm, but I’ve crossing the border a greater risk.” never carried it. If the border guards I was sorry to hear that Peter was giv¬ catch me with it, I’ll be shot immediate¬ ing up his business, since several of my ly” Hungarian friends had successfully used “Carry it with you this time, Peter, his services. Good “guides” were difficult and if he tries any funny business, be to find. Most of them were eventually sure he’s dead before you run away!” caught by Soviet troops guarding the Peter had an abiding hatred of com¬ border or by Hungarian guards, and munists in general and of Russians in were killed on the spot or given long particular. His sister had been raped by prison terms. Russian soldiers and an older brother was Peter placed the thick envelope in his shipped to the Soviet Union for slave la¬ pocket. “It’s all set then. The colonel bor. I could trust him to carry out this request. “Then I suppose I’ll not be see¬ Fred Godsey, a regular contributor to the ing you again,” I said. “Is there any way JOURNAL, is a retired Foreign Service officer. you can let me know if you make it

38 FOREIGN SERVICE JOURNAL THERE WAS A time shortly after thing American. It developed that he childhood in the Soviet Union. His World War II when there was was an ardent fisherman, as was I, and I brother, the only living member of his some fraternization between the invited him to accompany me the follow¬ family, worked in a factory in Leningrad. Russians and the Americans. ing weekend to a well known trout lake. His parents had been killed during the True, even then these social contacts Much to my surprise, he accepted—of war. He had been selected by his govern¬ were limited, and when Soviet military course with a proviso that he could bring ment for training in a “special school" officers or diplomats met with Americans a friend. because he excelled in foreign languages. they were usually accompanied by one or We spent an enjoyable fishing week¬ One day near the end of summer, more other Russians. Thus, when I met end at Lill Aftired. The friend, whom he when the fishing season was almost over, Ivan Povenko during my first year as an introduced as Captain Nikolai, wore a Povenko and I were sitting in our row¬ American consular officer in Budapest, Soviet army uniform and spoke only boat still trying for the “big one.” He he was in the company of Soviet officials Russian, although I suspected that he reeled in his line and rested the rod on from the Kommandatura. He had come understood English. Nikolai was not a the bottom of the boat. “I wonder if you to a luncheon given by the American and fisherman, but he accompanied us each would do me a favor,” he said suddenly, British legations at the luxurious Park time we went to the lake. He refused, looking quickly over both shoulders as if Club in Budapest. He was in civilian however, to get into the rowboat with he thought someone else might be listen¬ clothes and was introduced to me simply us. The poor fellow was prone to seasick¬ ing. as Mr. Povenko from the Soviet consul¬ ness and sat on the bank with a few bot¬ “Of course,” I replied. “If I can.” ate. He was seated next to me at the ta¬ tles of beer. He took a deep breath, as a swimmer ble. He was a young man, about the Povenko and I fished together almost does before diving into a cold pool. “I same age as I, and spoke excellent Eng¬ every weekend that spring and summer want to go to the United States—to live lish with a very British accent. He vol¬ and came to know each other well. He and work there. I want to become a unteered that he was unmarried, and was an excellent fly angler and taught United States citizen. I wanted to defect that he had served in London during the me many new ways of casting for trout. when I was in London, but I didn’t have war. He was fluent in several languages While we were in the rowboat—with a chance to break away from the others and obviously extremely well educated, Nikolai sitting happily under a tree with in my organization. I haven’t been en¬ and he seemed to be interested in every¬ his beer—Povenko would talk of his tirely truthful with you, for reasons which you might understand. I work di¬ rectly with the People’s Commissariat for Internal Affairs in Moscow. You know it, I believe, as the N.K.V.D. I hold the rank of colonel, and I have information which will be of value to your intelli¬ gence services. I am willing to give them this information if they will take me to the United States. Will you speak to someone in your legation about this? I realize that you would probably not risk flying me out from Hungary and that I will have to cross the border to Austria on my own, but even with this I would want your help. The guides I know are working for the Soviet Kommandatura, and it would be suicide for me to trust them.” I tried hard, but unsuccessfully, not to show my surprise. “All right. I’ll make inquiries and try to have news for you next weekend.” We rowed back to shore and helped Nikolai finish the beer. Early the next morning, I repeated Colonel Povenko’s request to my superi¬ ors. The unanimous decision was that he would have to go to Austria and make his request to the American consulate or to the American military command in Vienna. We would alert the consulate in Vienna, but we could offer no encourage¬ ment, nor could we officially assist him to cross the Austrian border. So far as we were concerned, he was a Soviet agent provocateur. Colonel Povenko and I had no real in¬ terest in fishing when we rowed to the center of the lake the following Saturday

APRIL 1987 39 afternoon. The fish were not biting any¬ always negative. Both Peter and Colonel way. Nikolai sat under his tree as usual. Povenko had disappeared without a Povenko was pleased with my report, trace. since he had not expected more. I told him that I had, unofficially, talked with a guide, known to me to be reliable, and THE YEARS PASSED, bringing new PEOPLE that he wanted $ 1000 in cash to take posts in other parts of the him over the border—half of which I world, different jobs, new would have to give the guide before they friends and, finally, retirement. met to begin the trip. I also requested a I have occasionally thought of the colo¬ passport photo, which I would send to nel, especially when alone on a trout Scholarship Essay the American consulate in Vienna. To stream or in the middle of a lake trying my amazement, he took out his wallet for the “big one.” But I must confess The month of April is a busy time for the and handed me a photo and five $100 that time eventually erased him from my AFSA Scholarship Programs. Volunteer bills. mind. panelists meet all through the month to After my rendezvous in the coffee¬ It was a beautiful August day in the determine the winners of the AFSA/ house with Peter, Colonel Povenko and 1 foothills of the Black Forest of southern AAFSW Merit Awards for outstanding met for the last time at an official dinner Germany. My wife and I were cutting a academic acheivement by graduating high party the following Wednesday at the few roses from the small garden of our school seniors. Essays written by previous Park Club. It was a gala event sponsored retirement cottage when the postman Merit winners have appeared in the JOUR¬ by the American and British legations. from the village brought a registered let¬ NAL on a regular basis. This essay, written There was music, dancing, and the food ter. At our age, a registered letter usual¬ by Tamara Boorstein for the 1986 compe¬ and champagne were plentiful. High- ly brings unpleasant news, and we tition, gives a timely view of Easter cere¬ ranking officers of the Soviet military opened it with some trepidation—even monies through the eyes of a teenager in and consulate in Budapest were guests, more so since the return address was that Moscow. We present it here for your en¬ and I managed to be seated next to Po¬ of a well-known medical research organi¬ joyment. Tamara’s parents, Mr. and Mrs. venko. While the tables were being zation in the United States. The letter Michael Boorstein, are currently stationed cleared for dessert, I gave the colonel a was signed by one of the most presti¬ in Warsaw. prearranged signal, excused myself and gious names in the medical profession: went to the men’s room. He joined me there a few minutes later and, when we Dear Sir: THE SNOW FELL heavily as we were alone, I handed him a brief, typed My father, Professor , former trudged toward the church to list of Peter’s instructions and told him head of the Slavic Languages Department celebrate the Orthodox Easter. that I had paid the $500. He read the of — University, passed away on Eyes peered suspiciously at our list hurriedly. June sixteenth after suffering a stroke. flamboyant western clothing. Americans “That’s the day after tomorrow,” I Upon opening his safe, we found an enve¬ seldom came to this small town near said. “Not much time left. Can you lope bearing your name, along with a note Moscow. I pulled my scarf closer to my in my father's handwriting stating that we make it?” head and walked faster. should get your address from the State My parents were spending their spring I thought I saw tears in the colonel’s Department in Washington, D.C., and eyes. “I’ve waited many years for this send the envelope to you. It is enclosed vacation out of the Soviet Union, and I moment. Yes, I can make it. Thank you. herewith. was spending mine with another Ameri¬ I hope we can be in touch again, but I My father emigrated to the United can family inside the country. This doubt it. From what I know of your peo¬ States shortly after World War 11 from weekend, the Browns had decided to ple, if I make it to the United States Yugoslavia. He got a teaching job at the tour Yaroslavl, a town on the Golden they will give me a new name, a new University of , where he met and Ring. The Golden Ring is a name for identity. My past will be buried for¬ married my mother, who died last year. the circle of church villages around Mos¬ ever." He brought no family records with him, cow. Yaroslavl has one church where the and he never spoke of his life and family I’ll never really know why I did it—it Soviet Government allows its citizens to in Yugoslavia. It occurs to us that you celebrate the Orthodox Easter. was an impulsive thing. I quickly took probably knew him in Yugoslavia, and 1 from my vest pocket a small, gold-plated would be very interested to hear from you We entered the square at midnight. medal of Saint Christopher, the patron in this regard. My sister and I would be The moon cast a harsh glow on the large saint of travelers, and put it in his hand. most grateful for any family information poster ahead of us, whose slogan in fiery “Take this,” I told him. “You’ll need all you could provide. red letters proclaimed: “Liberty, Peace, the help you can get. Good-bye, good Sincerely, Prosperity.” To our right three military luck, and I hope you will have no re¬ Dr. —, M.D. trucks stood at the entrance of the grets.” church looking picturesque against the He smiled and pocketed the little The enclosed unsealed envelope con¬ white snow. People of all ages filled the medal. “No. No regrets," he said. tained a small, worn Saint Christopher square, making it difficult to distinguish During the next several weeks, I reli¬ medal and a slip of paper on which was the soldiers among them. giously searched the Hungarian and Aus¬ written just two words, “No Regrets.” It We hurried toward the church, not trian newspapers for news of border inci¬ would have been a great honor for me to stopping to admire the old eastern beau¬ dents. I found nothing. I repeatedly correspond with Dr. , but I never ty of the square. Suddenly, two military asked friends who dealt with such mat¬ answered his letter. I prefer to let my old policemen stepped in front of Christine, ters at the consulate in Vienna whether fishing companion rest in peace—with the youngest daughter of the family, and the colonel had come in. The reply was no regrets. Q me. They placed their hands on our arms

40 FOREIGN SERVICE JOURNAL restraining us from moving closer to the Births died February 19 at Alexandria Hospital church. The wind drowned out our cries. after a heart attack. He was 78. Several seemingly endless minutes passed MEGAN CHRISTINE NORTON was born De¬ Mr. Eisenberg was born in Austria and before Mr. Brown discovered we had dis¬ cember 19, to Candie and James Norton. earned a law degree at the German Univer¬ appeared. Confronting the two officials, The father is a communications officer as¬ sity in Prague. He was a bank economist in he waved his diplomatic passport like an signed to the Office of Communications, Prague before moving to the United States American flag, and screamed like a fish¬ Washington, D.C. in 1940. He worked briefly for the Federal wife. With a shocked, apologetic look in Reserve Board before serving in the Army their faces, the men freed us and we ran ANDREW PATRICK THAYER was born No¬ in Europe. into the church. Once inside, I noticed vember 5 in Silver Spring, Maryland, to After the war, Mr. Eisenberg worked in the children’s faces anxiously peering Maria Elena G. and Scott N. Thayer. Mr. the research office of the State Department from outside the heavily guarded gates. Thayer is the special assistant in the Bu¬ before joining the Foreign Service in 1951. The church resembled an ornate min¬ reau of Oceans and International Environ¬ His foreign assignments included being iature palace. Large icons, gilded in gold mental and Scientific Affairs. U.S. representative to the European Coal covered the walls. Oriental rugs covered and Steel Community and economic and the altar floor, and mostly elderly people Deaths foreign aid posts at embassies in Mexico, covered the floor of the tiny church. Two Laos, Madagascar, and South Africa. Dur¬ citizen police stood at the door attempt¬ CABOT COVILLE, a retired Foreign Service ing the early 1960s, he was deputy chief of ing to persuade the people to leave the officer, died of cancer February 16 at his what was then the department’s Congo ceremony. The priest entered, dressed in home in Washington. He was 84. desk. gold and white, and soon the room be¬ Mr. Coville was born in Washington, He retired from the Foreign Service in came quiet. and was graduated from Cornell Universi¬ 1968 and later worked with the Interna¬ A woman passed me a lit candle and ty in 1923. He joined the Foreign Service tional Monetary Fund in Vietnam, Tur¬ scolded me for touching it with my three years later. He specialized in Japa¬ key, Madagascar, Botswanna, and Okina¬ gloves. The mass began. The priest nese relations and served as vice consul in wa. Survivors include his wife, Lilian, of sprinkled incense on his audience with a Kobe in 1929 and Dairen in 1931. Later Alexandria, Virginia, and a stepson, Till¬ gold thurible. A moan swept through that year he became consul to Tokyo. In man Neuner, of Arlington, and three the crowd and I found myself looking to¬ 1932, Mr. Coville was assigned as consul grandchildren. ward the altar. The mass continued on to Harbin, Manchuria, and returned to like this for sometime. Abruptly, the Tokyo three years later to be second secre¬ CARROLL S. HINMAN, a retired AID official, people turned and walked to the exit of tary at the embassy. died September 24 of heart failure at the church, blocked by policemen. The During the period from 1939—41, Mr. Mount Vernon Hospital in Virginia. He crowd grew, angry and shouts broke the Coville continued his service as an expert was 73. peaceful silence of the mass. The police¬ on Japanese affairs in Washington, the Mr. Hinman was born in Yakima, men were preventing the worshippers Philippines, Peru, and Brazil. In 1942, he Washington, and attended Central Wash¬ from observing the Easter custom of returned to the State Department to plan ington College. He later received his bach¬ walking around the church three times. for the postwar period in the event of Al¬ elor’s and master’s degrees from Syracuse This blatant display of religion would in¬ lied victory in the Pacific. Over the next University. He served in the Army in fluence the young Soviet’s mind, perhaps two years, he continued this planning and World War II. make him less willing to comply with related work in London and Stockholm. Before joining the Foreign Service in the the Soviet government later. Without He also participated in a series of prepara¬ early 1950s, Mr. Hinman was an examiner warning, everyone turned on the two tory meetings and the San Francisco con¬ and analyst at the Bureau of the Budget. men and forced the doors open. I ference in 1945, where the United Nations He served as AID program director in marched outside the church three times was formed. He contributed to the plan¬ Spain from 1957—62 and later directed the with the others, holding my brightly lit ning of the peace settlement and postwar agency’s African program development, in candle and making a wish as custom policies and, after Japan’s capitulation in Washington and Nairobi. After his retire¬ dictated. 1945, he worked under General MacAr- ment in 1970, Mr. Hinman was active in The green walls of the hotel appeared thur for the first two years of the occupa¬ Northern Virginia civic affairs. depressing compared to the gold and tion. He is survived by his wife, Jean; three light I witnessed that night. In my bed Mr. Coville retired from the Foreign sons, Jack, of Alexandria, Donald, of Lan¬ lay the remnants of the candle I held for Service in 1953 after a brief period as con¬ sing, Michigan, and Keith, of Berkeley, the mass. As I stared out the window at sul general in Halifax, Canada. In 1963, California; a daughter, Andrea Elia, of the falling snow I saw military trucks he was elected the first president of the Dundee, Scotland; two sisters, Lorene Ko¬ pass under a picture of Lenin. I snuggled newly established Japan-America Society zak, of Seattle, and Charlene Allman, of under the blankets and listened to the of Washington. Yakima, Washington; and five grandchil¬ toll of the church bells. He is survived by his second wife, Mar¬ dren. Five years later, in a spacious home in garet; a son from his first marriage, Gil¬ Fairfax County, I consider myself fortu¬ bert of Miami; two sons, Brooks Coville, ELIZABETH GILMORE HOLT, wife of retired nate to have witnessed that particular of Rome, Georgia, and Timothy Coville, Foreign Service officer John B. Holt and Easter observance. When I now read an of Washington; a daughter, Elizabeth Du- author and editor of books on art history, article on Soviet Government control and senbery, of Northfield, Minnesota; and six died of cancer January 26 in Washington. lack of religious freedom in that country, grandchildren. She was 81. I remember. I remember the church in Dr. Holt was born in San Francisco and the Golden Ring. ROBERT EISENBERG, a retired Foreign Ser¬ was graduated from the University of Wis¬ TAMARA LYNN BOORSTEIN vice officer who specialized in economics, consin. She received her master’s degree

APRIL 1987 41 from Radcliffe College and a doctorate in with the women’s trade union in Germany Service officer who specialized in Middle art history from the University of Munich. in the late 1940s. Eastern affairs, died of cancer February 9 in She taught art history at Duke University In addition to her husband, who lives in Bethesda, Maryland. He was 65. and Michigan State University. Washington and Georgetown, Maine, sur¬ Born in Boston, Mr. Houghton was She accompanied her husband to his as¬ vivors include a daughter, Elizabeth H. graduated from Harvard University in signments in Germany, Greece, Laos, Muench of Lexington, Massachusetts; two 1942 and later studied at the School for Switzerland, and India. Dr. Holt had sev¬ sons, John A. Holt of Chicago and Peter Advanced International Studies of Johns eral works published and was awarded a G. Holt of Potomac, Maryland; a brother, Hopkins University. He joined the For¬ Guggenheim Fellowship, which was used John A. Gilmore of Osterville, Massachu¬ eign Service as a clerk in 1945 and became to complete research for her book Art for setts; and six grandchildren. an officer in 1947. All Nations. She received the Freedom Bell His overseas assignments included Ke¬ Award from the city of Berlin for her work ROBERT B. HOUGHTON, a retired Foreign nya, Lebanon, , Jordan, and

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42 FOREIGN SERVICE JOURNAL London. He returned to Washington in ment’s Bureau of Administration. Mr. of Washington, and Richard Houghton, 1967 and became country director for Houghton received the John Jacobs Rog¬ of Greenville, South Carolina; one sister, Lebanon, Iraq, Jordan, and Syria. Mr. ers Award in recognition of outstanding Mary Houghton, of Falmouth, Massachu¬ Houghton attended the Senior Seminar in performance. He was also a member of setts; and two grandchildren. Contribu¬ Foreign Policy in. 1967 and was assigned to Diplomatic and Consular Officers, Retired tions in his memory may be made to the Lebanon again two years later as deputy and the Cosmos Club. Patient Emergency Fund at the National chief of mission in Beirut. From 1977-81 He is survived by his wife, Lois Chap¬ Institutes of Health. he was consul general in Istanbul. man Houghton, of Washington; one Before retiring in 1983, Mr. Houghton daughter, Eleni Houghton of Washing¬ CHARLOTTE M. MCAULIFFE, a retired For¬ was officer in charge of peace-keeping ton; four sons, Worthington Houghton, eign Service employee, died from natural forces on the Sinai peninsula. He then be¬ who lives in England, Robert B. causes February 16 in Washington. She came a reviewer with the State Depart¬ Houghton Jr., and Gill Houghton, both was 62.

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APRIL 1987 45 Ms. McAuliffe was born in Jamaica Smith’s next post was LaPaz, Bolivia, the Rica; one son, John W.R. Ylitalo, ofBur- Plain, Massachusetts, and began working following year. During the postwar years, tonsville, Maryland; two brothers, Ron¬ for the State Department in 1949. Her he was staff assistant to Secretaries of State ald, of Stillwater, Minnesota, and Roy, of overseas assignments included Frankfurt George Marshall and Dean Acheson and Seattle; one sister, Evelyn Zelazny, of In- with the U.S. Commission for Germany, worked on the U.S. delegation to the dialantic, Florida; and eight grandchil¬ and embassies in Tehran, Warsaw, and NATO, U.N., and Council of Foreign Min¬ dren. Copenhagen. She later became executive isters conferences. President Eisenhower secretary to two ambassadors in Bonn. Be¬ arranged Mr. Smith’s transfer to the staff Announcements tween her overseas postings, she served in of the National Security Council in 1953. the Office of Soviet Exchanges, and for the He became executive secretary of the new¬ Overseas Brats is a new publication about under secretary of state for economic af¬ ly created Operations Coordinating Board. those who have lived or gone to school fairs. While on detail to the White House, He returned to the regular staff of the NSC abroad. The Department of Defense De¬ Ms. McAuliffe worked with the presi¬ in 1961 and worked there until his retire¬ pendent Schools estimated that since dent’s adviser for economic affairs. Her last ment, and afterward as a consultant. 1946, more than five million Americans government position was with the State Mr. Smith received the Presidential have lived or gone to school oveseas. Over¬ Department’s Grievance Board. Award for Distinguished Federal Civilian seas Brats’ purpose is to help promote, pre¬ After her retirement, she joined the staff Service in 1964 from President Johnson. serve, and share this special heritage, and of Dumbarton Oaks, where she was an aide At the time of his death, he was complet¬ provide those who don’t have a sense of to its director. Until early 1986, she ing an extensive study of the NSC’s activi¬ “roots” a feeling that they belong to a spe¬ worked for a Washington consulting firm. ties during the Kennedy and Johnson ad¬ cial community of Americans with a Survivors include her brother, retired For¬ ministrations. Survivors include his wife, unique identity. eign Service Officer Eugene V. McAuliffe, Chloethiel, of Washington; a son, Brom¬ If you attended high school overseas, and eight nephews and nieces. ley Jr., of Washington; a daughter, Su- chances are there is an alumni group look¬ sanne Arias, of Madrid, Spain; two sisters, ing for you, or a reunion in the planning SAMUEL RODGERS PEALE, political-military Jean Burton, of Wheaton, Illinois, and for you to attend. Write when and where counselor at the embassy in Saudi Arabia Elaine Williams, of Glenview, Illinois; you went to school overseas, date of gradu- and a Foreign Service officer since 1962, and one grandchild. ation'from high school, and mail to: Over¬ died January 23 in Boston, where he was seas Brats, P.O. Box 29805, San Antonio, undergoing treatment for cancer. He was J. RAYMOND YLITALO, former ambassador Texas 78229. Expect a reply within four 50. to Paraguay and published author, died of weeks. Mr. Peale was a native of New York and cancer February 10 in Washington. He was graduated from Harvard College in was 70. A charitable fund has been established to 1958. He served in the Army before join¬ Mr. Ylitalo was born in Floodwood, honor the memory of the late Lois Wersba ing the Foreign Service. His overseas as¬ Minnesota. He was graduated from St. Roth, a distinguished cultural affairs offi¬ signments included Athens, Ankara, Olaf College in Minnesota and earned a cer in USIA. Income from the Lois W. Khartoum, Abu Dhabi, Kathmandu, and master’s degree in business administration Roth Fund will support, promote, and Riyadh. He had served on school boards at at Northwestern University. He also at¬ supplement international educational and several American community schools over¬ tended the National War College. cultural programs consistent with the spir¬ seas. He is survived by his wife, Joan, of Before joining the Foreign Service in it of Roth’s career in both USIA and the 11026 Ring Road, Reston, Virginia 1946, Mr. Ylitalo was a special agent with American Scandinavian Foundation. Pro¬ 22090; two sons, Samuel Randolph and the FBI. For the next four years, he was a grams generated by the fund may be car¬ Daniel Sorlin Peale, of Reston; and a sis¬ political officer at the mission in Helsinki. ried out by USIA as consistent with the ter, Margaret Phillips, of New York City. Mr. Ylitalo was the State Department’s Fulbright-Hays Act, but will not be limit¬ Memorial contributions may be made to representative on the Interdepartmental ed to activities specified by the act. Other the Dana Farber Cancer Institute, 44 Bin- Committee on Internal Security from institutional channels may also be used to ney Street, Boston, Massachusetts 02115. 1950—53. During the late 1950s, he had administer programs as deemed appropri¬ assignments in Germany and the Philip¬ ate. The fund will be lodged within USIA BROMLEY K. SMITH, former executive secre¬ pines. He returned to the State Depart¬ and guided by a board of directors whose tary of the National Security Council, died ment in 1962 and worked there until initial members will be Richard T. Arndt, of cardiac arrest March 1 in his home in 1968. He served briefly as consul general husband of Ms. Roth; Joann Lewinsohn, Washington. He was 75. in Tijuana, Mexico, before being named deputy director of USIA for educational Mr. Smith was born in Muscatine, ambassador to Paraguay in 1969- He held and cultural affairs; Stanton H. Burnett, Iowa. He studied at the Zimmern Insti¬ the ambassadorship until 1973. For the counselor of USIA; Evelyn Swarthout tute School in Geneva in 1931, the Insti- next three years, he was consul general in Hayes, pianist and professor emeritus at tut des Hautes Etudes Internationales of Toronto. He retired in 1976. American University; Henry A. Millon, the Sorbonne in Paris from 1931-32, and His books include Secret Messages from dean of the Center for Advanced Study of was graduated from Stanford University in Helsinki to Washington, published in 1978, the Visual Arts at the National Gallery of 1933. Before he joined the Foreign Ser¬ From the Danger Years to the 1950s, pub¬ Art; Steven Muller, president of Johns vice, Mr. Smith was a reporter and news lished in 1979, and Ylitalo, the American, Hopkins University; and Robin Winks, editor for the Washington Daily News from published in 1982. master of Berkeley College at Yale Univer¬ 1935-40. Survivors include his wife, Jean Sarchet sity. Tax deductible contributions should He was married in 1940 to Chloethiel Ylitalo, of Washington; three daughters, be made payable to USIA and addressed to Woodard Smith, a renowned architect, Georgianne Farness, of Flagstaff, Arizona; the Roth Fund, Bureau of Educational and and was assigned to his first Foreign Ser¬ Mary Catherin Ylitalo, of Calgary, Alber¬ Cultural Affairs, USIA, 301 Fourth Street vice post, Montreal, as vice consul. Mr. ta; and Sara Lisa Ylitalo, of San Jose, Costa S.W., Washington, D.C. 20547.

46 FOREIGN SERVICE JOURNAL 1987 AFSA ELECTION SECTION

In accordance with AFSA Bylaws, and pursuant to the terms of the and for their respective constituency representatives. The order in 1987 Election Call, the following members have been duly nomi¬ which the names appear on this list and the candidates’ campaign nated and have accepted their candidacies for the positions indicat¬ statements in the pages which follow were determined by the draw¬ ed below in the 1987 election of officers and constituency represen¬ ing of lots at a meeting of candidates on March 10, 1987. tatives of the AFSA Governing Board. All members vote for officers

Officers Constituency Representatives President: State (Choose 5): Flartford Jennings (Action slate) Barbara Hughes (Action slate) Perry Shankle Shelley Johnson (Action slate) John Hemenway Ward Barmon (Action slate) Paul D. Molineaux Gerald Lamberty Jonathan Farrar Vice President: Matthew Daley (Action slate) Sandra Odor State: Anthea S. de Rouville (Action slate) Evangeline Monroe AID: Henry Merrill AID (Choose 2): Frank Young (Action slate) Michael Zak (Action slate) USIA: A. Stephen Telkins (Action slate) David Garms (Action slate) William Flynn Secretary: John J. Harter USIA (Choose 1): James W. Bean John Quintus (Action slate) James Derrick (Action slate) Commerce (Choose 1): Treasurer: Samuel Mok (Action slate) Agriculture (Choose 1):

Retired (Choose 3): Bruce Laingen Earl Sohm (Action slate) John Thomas (Action slate) Roger Provencher (Action slate)

Ballots will be mailed on or about May 15,1987, and marked ballots laws, Chapter 10 of the Foreign Service Act (as interpreted by the must be returned by noon, June 30, 1987. If you have not received Department of Labor), Section 401(c) of the Labor Management your ballot by June 7,1987, notify the chairman of the AFSA Elections Reporting and Disclosure Act, 29 CFR Section 452.69, and 452.70. Committee immediately in writing at Box 42142, Washington, D.C. AFSA is not permitted to in any way regulate, alter, amend, or edit the 20015, or by "AFSA Channel" cable marked for delivery to AFSA contents of campaign literature which a candidate wishes to have Elections Committee. distributed to union members in the course of an internal union elec¬ It is each AFSA member's responsibility to see to it that his or her tion. AFSA therefore disavows all liability for the contents of the proper address and constituency are on record with AFSA. following campaign statements. Each candidate is solely responsi¬ AFSA disclaims all responsibility for the following statements and ble for the contents of his or her submission. biographies. The Association has a statutory obligation to publish these submissions in accordance with Article Vl(4) of the AFSA By¬

APRJL 1987 47 Hartford Jennings John D. Hemenway Anthea S. de Rouvllle Hank Merrill President President State Vice President AID Vice President Action Slate Action Slate Hartford T. Jennings is a State John Hemenway is a 1951 grad¬ Thea de Rouville is a graduate of I have served in A.I.D. for eleven Department Political Officer who uate of Annapolis who won a the University of New Hampshire years. Aside from a Peace has served in Abidjan, Addis Rhodes Scholarship to the Uni¬ and Katherine Gibbs Secretarial Corps tour in Nepal, I have Ababa, and Gaborone. Now in versity of Oxford where he stud¬ School. She joined the Foreign served in the Philippines and the 10 Bureau, he has represent¬ ied for three years prior to en¬ Service in 1957, serving both Thailand. My current assign¬ ed the U.S. at several interna¬ trance into the Foreign Service, overseas and in the Department ment is with the Africa Bureau's tional meetings. In 1985, he by examination. of State. She is a former Presi¬ Development Program Office in chaired a major drafting commit¬ In the Foreign Service, John dent of SEPTEMBER 17, an Associ¬ A.I.D. Washington. tee of the FAO governing body. became a German and Soviet ation of Secretaries and Com¬ Jennings was elected Secretary expert and served in Moscow for municators. Representing that of the AFSA Governing Board in two years. He understands the organization she joined the State 1985, after serving on the State special problems of the foreign Standing Committee in 1978 Standing Committee. service and the need for ade¬ and was elected to the AFSA quate compensation for the ex¬ Governing Board in 1979. igencies of the service. John now is legal counsel to Accuracy in Media and is accre¬ dited to the Department of State as a correspondent. He is an ac¬ tive member of the National Press Club.

Perry Shankle Paul D. Molineaux Evangeline Monroe Frank J. Young President President State Vice President AID Vice President Action Slate A career FSO, Mr. Shankle Born 1937 NY. B.A. 1958 Evangeline Monroe, FSO-3, ad¬ Frank Young joined A.I.D. in joined the service in 1956. He is Georgetown. US Army 1959. U. ministrative cone, currently 1976 and has served in the Phil¬ now Director of the Office of Madrid 1961. Free U. Berlin Nicaraguan desk officer, ARA- ippines and India. Since return¬ Mexican Affairs. He has served 1963. M.A. Pol. Sci. 1966. 1967 /CEN. Entered the service June ing to Washington in 1984, he in Mexico City, Nassau, La Paz, Ext. Rsch., INR. 1968 Open 1978. Previous assignments: has worked in PPC, as Philip¬ Madrid, Santiago and Quito. He Arms Advisor, Vietnam. 1970 Citizens Emergency Service, pine Desk Officer, and currently has had several Washington as¬ Coml Off, Frankfurt. 1972 Ger¬ CA; General Services Officer, is chief of the Mediterranean/ signments, including Director of man analyst, INR. 1973 Cantho, Consular Officer, Bern; Nicara¬ Near East Division in the Office the Operations Center, as a Vietnam. 1974 Yemen, Oman guan analyst, INR; Planning Offi¬ of Project Development in the desk officer, and an early eye Desk, NEA. 1976 Pol Off, Beirut. cer, ARA/PPC. Married, one Asia/Near East Bureau. Young's opening stint in PER. 1978 M/MO., 1979 Chmn, Open teen age daughter. government service prior to join¬ Forum. 1980 Pol Off, Bonn. 1984 ing A.I.D. includes staff assistant DPO, Rio. 1985-87 Chief, Cur¬ to Rep. John J. McFall (D-Calif.) rent Intelligence, INR. Ger, Fr, from 1972-76. Mr. Young holds a Sp, Port. Merit. Honor: 1969, PhD. and Master's degree from 1977, 1986. 1970 Youth Com¬ the Fletcher School of Law and mittee Chmn, Frankfurt. 1974 Diplomacy. AFSAKeyman, NEA. 1978 Open Forum Wkng Gp on Professional Concerns. 1981 AFSA Chapter Rep, Bonn.

48 FOREIGN SERVICE JOURNAL Perry Shankle resist politicization of the Serv¬ and specialists. President ice. But they did just the oppo¬ Defend COLA and other re¬ site. tirement benefits. The Foreign Service has come They were largely silent on po¬ Give full consideration to on hard times. The proportion of litical appointments. Showing using the experience and talents political to career ambassadors their indifference, their annual of retired personnel. has not been higher in living reports even failed to mention Our team pledges to work with memory. Posts are being the problem of involuntary retire¬ all elements of the Service and closed, and further budget cuts ment and the threat of shortened with the representatives of other A. Stephen Telklns threaten to disrupt US foreign careers for all officers. The prob¬ agencies and retired members USIA Vice President policy and force further drastic lem is not simply one of employ¬ to press management more ag¬ Action Slate personnel reductions. These de¬ ment, it is at the heart of the Ser¬ gressively and more effectively A Foreign Service officer since velopments affect all our mem¬ vice's ability to serve the to achieve these goals. 1966, Stephen Telkins currently bers—of all agencies—and to President and the Secretary and VOTE SHANKLE, MONROE, chairs the AFSA Standing Com¬ address them aggressively de¬ have its voice heard and its MERRILL, BEAN, LAMBERTY, mittee at USIA and also the Edi¬ mands new AFSA leadership. weight felt in the development FARRAR, ODOR, and LAINGEN torial Board of the Foreign Serv¬ Several of us have joined togeth¬ and execution of foreign policy. for RENEWAL of AFSA and the ice Journal. Fie holds a B.A. from er to form the RENEWAL team to Only Gerry Lamberty, a member Foreign Service. Williams College and an M.A. offer this leadership. of our team, has spoken out vi¬ from the University of Pittsburgh. Our RENEWAL team includes: gorously and consistently in the Telkins has served with USIA in Perry Shankle for President; councils of AFSA on this over¬ Chile, South Africa, Zaire' Evangeline Monroe for Vice arching professional problem. Madagascar, Nigeria and Liber¬ President (President of the State We think it is time for a new ia. He has assisted in the VOA Standing Committee); Hank professional look at what needs modernization program and Merrill for AID Vice President; to be done to restore the Serv¬ been a Congressional Fellow Jim Bean for Secretary, Gerry ice's primary role and reputa¬ and desk officer for southern Af¬ Lamberty, Jonathan Farrar and tion. rica. He now is chief of USIA's Sandra Odor for State Repre¬ Late last fall AFSA was finally Africa Wireless File. sentatives, and Bruce Laingen forced to do something. While it for State Retired. issued a ringing statement of Just when the Department of concern, AFSA's State Standing State should be strengthening Committee settled for a proposal its position in the foreign affairs that was inept, inadequate, and community, management has nonrepresentative. In effect, the downgraded many positions— Action Slate called for more Notice: Members of the Action reducing our effectiveness forced retirements, offered a to¬ Slate have waived their opportu¬ abroad and our ability to deal ken lifesaver for 0-1 s, and cre¬ nity to present individual state¬ with other agencies in Washing¬ ated an '‘underclass” for juniors. ments in favor of a joint slate ton and abroad. By doggedly They did not address the “flow- statement. pursuing an ill-advised "flow through” concept, which de¬ Biographies for candidates through” concept, qualified and stroys experience, truncates ca¬ for secretary, treasurer, and constituency representatives experienced officers of proven reers and causes so much will be found with their state¬ ability are being forced out and dysfunctional behavior by FSOs ments. virtually every FSO faces the trying to survive. threat of involuntary retirement in his/her early fifties. This same Renewal Program system will soon be applied Restoration of professional¬ more fully to specialists, com¬ ism, influence and reputation of municators and secretaries. the Foreign Service. Even Under Secretary Spiers Reverse trends to politicize questions this policy in his re¬ the Foreign Service. cent Journal interview. The cur¬ A full and rewarding career for rent State Standing Committee officers and staff. leadership, which is running for Selection out for documented reelection on the Action Slate, sub-standard performance with are the only ones who still sup¬ a fair review procedure. port this “flow through" person¬ Fair treatment of all segments nel system. of the Service. Those State members of the Improved working environ¬ outgoing board who are seeking ment, conditions, and benefits. reelection under the so-called Humanize the personnel sys¬ Action Slate have done well to tem. change their name. They were Combat efforts to eliminate the Unity Slate in 1985 when the 20/50 retirement option. they promised to represent the More liberal and flexible interests of all members, to har¬ stretch assignments. monize those interests, to sup¬ Respond to unique needs of port a full lifetime career, and to secretaries, communicators,

APRIL 1987 49 John Hemenway out” as practiced in the FS. He¬ pushed by Nixon and Kissinger used to destroy careers. President menway opposed "selection because of John Hemenway's Hertienway will return to a out" successfully when AFSA testimony. policy of “openness" at Board ELECT JOHN 0. HEMENWAY President before—you can WHAT IS THE STATUS OF meetings, making all Board AFSA PRESIDENT count on him to do it again. Can THE FOREIGN SERVICE AND members accountable for their Rhodes Scholar; Past AFSA you count on others not to bar¬ HOW CAN PROBLEMS BE actions and votes. President 1975-1976; German/ gain with personnel to their CORRECTED? Hemenway will republish the Soviet FSO Specialist benefit? Hemenway would fight the Foreign Service Biographic Sworn Testimony Citing A Like Eagleburger, who cut a corruption rampant in the per¬ Register so that once again a Senior FS Inspector: “THE deal with Wayne Hayes (you re¬ sonnel process. non-personnel type can under¬ TROUBLE WITH HEMENWAY member—the corrupt congress¬ And, Hemenway knows where stand what is going on in the IS THAT WE CAN’T BUY HIM man who declared: “I am the FS it is located and what should be personnel world that affects his OFF” Grievance System"), the pres¬ done about it. colleagues. Just What Kind of Conflict of sures on AFSA Presidents who OER's absolutely should not Hemenway will restore the Interest Do You Want to Get must protect their own livelihood be used to terminate the careers “President's luncheons” he When You Elect Your Next AFSA are simply overwhelming. of FS Personnel. Hemenway be¬ started in 1976, and restore ties President? Hemenway saved the AFSA lieves it is a violation of law to with the Washington diplomatic 1. You have 4 candidates—3 building, when AFSA President. use OERs in this manner. community and with sympathet¬ of them currently have career Hemenway promoted the poli¬ In fact, the OER system has ic members of the Congress. problems. The current AFSA cy of “Openness" which opened been so notoriously corrupt for Hemenway will establish a President, running for the Board all AFSA Board meetings to the so many years, there is clearly policy of "PRESIDENTIAL also has a career problem. One public. A pretense is made of something wrong with any per¬ QUESTIONS” in which: can be sympathetic to the in¬ continuing the policy today— sonnel or administrative officer ■Any member can call the tense interest of those men in Hemenway would reinvigorate from Messrs Spiers and the Di¬ President directly from any normalizing the career service. it. rector General on down, if they place in the world and place a 2. Do you think an AFSA Presi¬ WHAT DO YOU THINK OF A actually choose to rely upon this question, either confidentially or dent will push the Board to rem¬ GROUP OF PROFESSIONAL system to eliminate or destroy openly, as he wishes. That ques¬ edy your concern when he is MEN AND WOMEN—LIKE careers, which, of course, is tion will be given a number in about to lose his "job" in the For¬ THOSE IN THE FOREIGN SERV¬ what they are doing. seriatim and answers coded to eign Service? But everyone in ICE The analogy between the FS that number. the FS has a career problem, be¬ Who consistently rank very and the military should be de¬ ■The questions will be asked cause our career service is in high among their peers over the bunked once and for all. It was and within one week, the mem¬ trouble! years; promoted over the years by ber will have an answer. 3. Hemenway has stood up for Who are currently among the such lightweights as Rimstad, ■REMEMBER, THERE ARE the Foreign Service—more than most motivated and in that peri-, Crockett, Macomber and Eagle- NO EMBARRASSING QUES¬ once! Retired, he became an at¬ od of life in which they are best burger who knew better and vir¬ TIONS IN THE DIPLOMATIC torney after his last office in prepared, professionally; tually laughed scornfully at the SERVICE—THERE ARE JUST AFSA, as President, where sev¬ Who have tenure and practi¬ FS as they used this analogy to EMBARRASSING ANSWERS! eral appointed Board mem¬ cal experience far above that of eliminate competent officers to TRY IT! YOU CAN CALL bers—attorneys—were feather¬ their peers; make room for their personnel JOHN HEMENWAY AT HIS ing their own nests. Several of And yet are thrown out of the manipulations and favorites. WASHINGTON OFFICE (202) these have reaped the whirlwind service because of the above Who has not worried about an 371-6710 IN WASHINGTON, and are now out of the FS. factors. OER about to be written by a su¬ D.C. WHAT HEMENWAY ACCOM¬ AS AFSA PRESIDENT, HE¬ perior who is himself in difficul¬ PLISHED AS AFSA PRESIDENT MENWAY WILL DEFEND YOUR ties? A complete study of abnor¬ IN 1975-1976; INTERESTS IN THESE AND mal psychology could be written The FS was being gutted dur¬ OTHER MATTERS about such types. As FS person¬ ing that period, too, by men just How do you know you can nel we have to live with such as unprincipled as Ron Spiers. count on him? Wasn't there trou¬ conditions, but our AFSA should In 1975 Hemenway stopped ble between Hemenway and his at least attempt to insulate us selection out for “T.I.C." dead in Board? against such risks. With terror¬ its tracks. You bet there was! He put his ism, et al., there are already Hemenway got through the hand in the fire for AFSA during enough risks in the service. grievance legislation, making his last Presidency, against the WHAT POSITIVE MEASURE the F.S. the only division of gov¬ will of Board members favoring WOULD JOHN HEMENWAY ernment outside of the Armed a “sweetheart deal” with mam TAKE AS AFSA PRESIDENT? Forces with a legislated griev¬ agement for their benefit. Protection of your career is a ance system (the armed forces ■Howard Mace, the Director positive step; Hemenway be¬ have their courts martial system of Personnel became the first lieves that once admitted to the of justice). career man in the up-to-that- FS, barring health (and therefore Having served 9 years begin¬ time 190 year history of the Sen¬ competence) deterioration, one ning with WWII as an officer in ate confirmation process ever to should expect a long, useful ca¬ the Army Infantry, the Navy, and fail confirmation for ambassa¬ reer—not an abbreviated one of the Air Force, Hemenway is well- dor, because Hemenway ex¬ 20 years or less. qualified to oppose those know- poses his corrupt practices. Hemenway would fight the nothings who draw a tight anal¬ ■Similarly, Helmut Sonnen- concept that the “law" requires ogy to the armed forces, thereby feldt—Kissinger's Kissinger- the FS administrators to imple¬ attempting to justify "selection failed confirmation even though ment selection out as it is being

50 FOREIGN SERVICE JOURNAL Paul D. Mollneaux been set by a handful of activists marshall's baton in his knap¬ son system should be revived as President in the Seniors’ Association, in¬ sack. Foreign Service officers a link between members and the tent on class interest whatever too reach their "levels of incom¬ AFSA Board and committees. As a labor union, AFSA can the cost to the Service. Manage¬ petence." Even some good offi¬ AFSA should promote participa¬ claim real achievements: crea¬ ment's acquiescence would cers, not at par with their col¬ tory activity outside of work ture comforts and fringe benefits lead in time to the present dis¬ leagues, may have to step hours: clubs for junior officers, of life in the Foreign Service are graceful situation: class set aside. But Department manage¬ secretaries, communicators, mi¬ better than ever, from shipping against class; needed expertise ment has carried this last princi¬ nority groups. Once we start allowances to spousal employ¬ crudely chopped out; younger ple to a shameful extreme, talking to one another, we can ment opportunities. Neverthe¬ officers increasingly seeing the thereby mortgaging the future of begin to develop some consen¬ less, the Service abroad and in Foreign Service as a temporary the Service. sus on what we are. Washington is still not always a job; the assignments process in¬ For the last two years a num¬ In time, AFSA can help turn "good place to work": We need creasingly a shambles. Man¬ ber of officers have been deeply around our present disaffection more decent quarters and fur¬ agement has become a curator involved in one burning issue: and divisiveness, and win broad nishings for staff and junior offi¬ of the “arrived” generation, indif¬ systematic decimation of the acceptance of professionalism. cers at many posts, a more re¬ ferent to the future of Service corps of FS-1 generalists by De¬ We must start by putting our own sponsive infrastructure for and country. partment management, per¬ house in order: AFSA's leaders everything from payrolls to Department Management in versely arguing it was com¬ and members will need more household effects, clearer defi¬ 1979-80 sought greater flexibil¬ manded by the 1980 Act. Some energy, more courage. The For¬ nition of careers and opportuni¬ ity, and AFSA acquiesced. But 250 officers, including ambas¬ eign Service needs to convince ties for secretaries, communica¬ scope to manage well is also sadors and seniors, endorsed a itself that firm, principled dis¬ tors, technicians and officers scope to manage badly. In sup¬ paper we prepared in January agreement with management alike. porting the 1980 Act, AFSA 1986, “Crisis in Foreign Service and committed pursuit of excel¬ As a professional association, should have assumed a broader Management.” Recently, we lence do not constitute disloyal¬ AFSA has largely failed. It has responsibility to uphold Service have done more study and ty, Friends in Congress, the had good but also weak and di¬ character, independence and made proposals, to a deaf man¬ press, the “foreign policy es¬ sastrous leadership: In the early integrity. agement. tablishment" and the public can 1970s, we almost lost selection Instead, after 1980, AFSA lost Early on we sought AFSA in¬ and must be won. We can con¬ out for substandard perform¬ its relevance. Some elections volvement, but were sabotaged vince political Washington there ance. We elected a President were uncontested. The once by AFSA's top leadership. By is a better place from which to who had been selected out. As lively Junior Foreign Service the fall of 1986, after the blood of run foreign policy than the an AFSA bureau representative, Club evidently disappeared. “Cohort I” was all over the floor, White House basement. I helped in his removal when it Spirited debate yielded to mud¬ others in AFSA came to realize I will be working with col¬ became clear that he was not dled monologue at AFSA's few that the “FS-1 problem" was leagues to develop proposals there to pursue the good of the public meetings. AFSA now has real. The upshot, however, was for an AFSA action plan in the Service. The Department’s early a President who sees the Serv¬ an indefensible pork barrel of May Foreign Service Journal. affirmative action efforts simply ice as a large law firm: senior proposals, submitted to man¬ We welcome your views on AF- lowered standards, rather than officers should, because of their agement in the vague hope SA’s role in making the Service recruit and develop minority experience, have life tenure. something could be won the instrument of a truly profes¬ members. through negotiation. AFSA was sional American diplomacy and AFSA was enticed to support irresolute, unimaginative and in¬ a “decent place to work." We a new Foreign Service Act effective. need your involvement. through pay comparability, a The 1980 Act, like its prede¬ Neither Department leader¬ —Paul D. Molineaux, INR/IS/ statutory basis for employee re¬ cessor, gives the Department ship nor AFSA has offered a vi¬ CIS, Room 6510A, Tel: 647-8710 presentation and grievance pro¬ the necessary and sufficient in¬ sion of the Service which its cedures. i joined in the debate struments to maintain a quality members or the body politic can about the Act, through the AFSA Service: time-in-class, selection embrace. Service officers often working group and the Open Fo¬ out for substandard perform¬ win the confidence of the politi¬ rum, and along with others dis¬ ance, voluntary retirement at cal leadership, but then show lit¬ covered that part of manage¬ 50/20. Sometimes we forget that tle understanding of Service ment's agenda was to politicize we cannot be an army of gener¬ professionalism, and even less the senior service. Ambassador als: we need a rank structure in in impressing it upon the politi¬ Martin Hertz and others did stem both positions and personnel, cal leadership. the tide of politicization, and roughly in synchronization. Can we create a Service es¬ eventually time-in-class rules re¬ But we also cannot be an prit de corps?Abroad, we usual¬ placed three-year contracts for army of corporals. We need ly reflect an authentic esprit de seniors. But the Act added un¬ unique expertise in foreign lan¬ corps, shared with other agency wise gimmicks—an unlimited guages and areas, and broad colleagues. Embassies and authority (to judge by Manage¬ understanding of world affairs consulates are communities, ment's behavior) to grant unlim¬ and US policy. These require where people socialize and help ited “limited career extensions" time, more than permitted by the one another. Washington, in to seniors, and the indefensible military model which manage¬ contrast, is a machine: Motor “window" for FS-1s. ment sometimes openly en¬ pools and bus schedules gener¬ Although most seniors surely dorses. Rank structure deci¬ ally make impossible casual fra¬ do see beyond their class inter¬ sions must be derived from ternization across the ranks after ests to the good of the Service, Service needs, not some irrele¬ hours—essential for sharing and remember their terms of vant external model. group values and identity. employment, the senior tone has I Not every corporal has a AFSA could help. The keyper-

APRIL 1987 51 Action Slate Statement employees’ rights with regard to How long should it last? At what of an outstanding career in the drug and polygraph testing. We level should it end? What provi¬ Foreign Service. We will support have defeated agency attempts sions should be made for retire¬ the appointment of highly-quali¬ to cut corners on allowances ment? What kinds of assign¬ fied, knowledgeable citizens as The American Foreign Service and have worked to soften the ments should characterize a U.S. Ambassadors whether they Association needs leadership effects of non-negotiable man¬ Foreign Service career? To what come from within or outside the that is aware of the many chal¬ agement actions such as extent should the foreign affairs Service. lenges it faces and that will be downgrading Senior Foreign agencies administer their sys¬ We will conduct a review of sensitive to and take into ac¬ Service and other positions and tems differently? How should the Foreign Service Act of 1980 count the needs of the many ele¬ closing posts. In the next two they relate to each other and to and its implementation to deter¬ ments which together make up years we expect to have to deal the other portions of the U.S. mine whether to seek its revi¬ the Foreign Service. The ACTION with attempts to impose more re¬ Government? What is the Serv¬ sion. SLATE offers such leadership. strictive travel regulations, the ice's need for specialized skills We will seek to have the AID The ACTION SLATE is a unified transition into the new retirement and how many generalists Vice President placed on 100% slate. It offers representatives system, attempts to tax allow¬ should it have? How broad official time to pursue his or her from State, AID, USIA, and ances, and efforts to “discipline should generalists' skills be? AFSA duties. AFSA's retired constituency. It is and control" members of the Ser¬ What distinctions should there We will support full obser¬ an experienced slate. Hartford vice and other Federal workers. be between specialists and gen¬ vance of the principle of diplo¬ Jennings, Anthea de Rouville, Over the past two years, AFSA eralists? How can the Foreign matic immunity. Frank Young, Stephen Telkins, has greatly strengthened its Service best make use of word We will underscore the differ¬ James Derrick, Sam Mok, Bar¬ contacts on the Hill, with both processing and computer tech¬ ence between constructive ad¬ bara Hughes, John Quintus, members of the Senate and nologies? vice and disloyalty. Our political Roger Provencher, and John House and with staffers. On the The ACTION SLATE intends to leadership must be convinced Thomas are currently members basis of these and other con¬ lead AFSA's membership in de¬ of the value and worth of Foreign of the Board. Matthew Daley, tacts, the members of the ACTION veloping answers to these ques¬ Service counsel even when it Ward Barmon, Shelley Johnson, SLATE have concluded that the tions over the next two years. In may run counter to their desires. Michael Zak, and David Garms next two years will see severe addressing these concerns we WE WILL ADDRESS AFSA'S are members of their respec¬ pressure on the budgets of the will be guided by certain basic INTERNAL ORGANIZATION tive standing committees. And foreign affairs agencies. Be¬ principles. The Service should AFSA must be properly orga¬ finally, Earl Sohm has been ac¬ cause of these budgetary con¬ carefully weed out non-competi¬ nized internally in order to deal tive in DACOR. We are exper¬ straints and, in some cases, of tive personnel at all ranks and in with these questions. The Asso¬ ienced in the day-to-day, ungla- lack of appreciation for or ani¬ all areas. On the other hand, it ciation is the exclusive repre¬ morous and often tedious mus against the Foreign Serv¬ must provide those who are sentative of the Foreign Service negotiations with agency man¬ ice, we expect to confront pro¬ competitive rewarding full- employees of the Department of agements under the Foreign posals for additional post length careers. In addition, it State and of the Agency for In¬ Service Act. Bread and butter is¬ closings and position down¬ should promote its most out¬ ternational Development (AID). sues, which affect Service mem¬ gradings. The agencies may standing members rapidly to its In addition, we have members in bers of all ranks and agencies, well feel a need to cut back their highest reaches. The Service the U.S, Information Agency are high priority with the ACTION workforces or furlough person¬ should offer early retirement with (USIA), in the Foreign Agricultur¬ SLATE. nel. They will find tempting any pensions which adequately rec¬ al Service (FAS) of the U.S. De¬ We reflect the unity and diver¬ reduction in perquisites or bene¬ ompense its members for their partment of Agriculture and in sity of the Foreign Service. Men, fits which offers the possibility of arduous and dangerous serv¬ the Commerce Department’s women, minority groups, the savings! It will require all our ice. It should force retirement Foreign Commercial Service staff corps, State, AID, and USIA knowledge and experience and only at an age high enough to (FCS). We have standing com¬ are all represented within our the active support of AFSA's ensure that it is not deprived of mittees in State, AID, and USIA ranks. The make-up of our slate membership to counter these valuable resources which will be which are charged to deal with illustrates our commitment to trends. difficult or impossible to replace. questions of concern to our equality of opportunity and se¬ Our slate is committed to We will support efforts to members within those agencies. lection on the basis of merit with¬ drawing on that which is con¬ counter terrorist attacks on dip¬ We also have a strong retired in the Service. As in the past, we structive in AFSA's experience lomats, particularly mainte¬ constituency. will work together to address the to guide our actions in the future. nance of the “no ransom" policy. Most of the members of the problems of all elements of the We intend to proceed on the ba¬ We will urge that security mea¬ Governing Board are elected Service. We will hold meetings sis of continuous consultation sures be consistent with, and from and represent one of these with secretaries, communica¬ with AFSA’s membership. We not impair, the accomplishment constituencies. The AFSA Presi¬ tors, specialists, and officers of will not only talk about threats to of U.S. diplomatic missions. dent, Secretary, and Treasurer, all agencies to elicit information the Service. We are committed We will attach high impor¬ however, are elected by the en¬ about their concerns. We will to considered constructive ac¬ tance to the negotiation of selec¬ tire membership. The Vice Presi¬ then make it our business to ad¬ tion to safeguard it. tion board precepts and will dents, although they represent dress those concerns. WE WILL GIVE PROFESSION¬ monitor how those precepts are particular constituencies, are THE ACTION SLATE WILL AL AND LABOR CONCERNS applied. elected by the entire member¬ PROTECT AND EXTEND AF¬ HIGH PRIORITY We will devote particular at¬ ship. The Board as an entity is SA'S PAST GAINS The next two years will be a tention to the development and responsible to all AFSA mem¬ In the standing committees time of challenge for AFSA. We implementation of open assign¬ bers. As AFSA President, Hart¬ and on the Board, the candi¬ must seek answers to funda¬ ments rules. ford Jennings will meet regularly dates of the ACTION SLATE have mental questions concerning We will oppose the appoint¬ not only with the State Standing been successful in securing ad¬ the Foreign Service. What ment of unqualified political Am¬ Committee, but with the other ditional consumables allow¬ should be the nature of a “typi¬ bassadors. We wish an ambas¬ constituency groups as well. ances and have acted to protect cal” Foreign Service career? sadorship to be the culmination Those committees will act for

52 FOREIGN SERVICE JOURNAL APRIL 1987 53 o Evangeline Monroe Hank Merrill James W. Bean State Vice President AID Vice President Secretary

I support Perry Shankle’s RE¬ Platform: Below are several se¬ James W. Bean: FSO 3 Political NEWAL team. The Foreign Ser¬ lected issues as well as some Officer assigned to EUR/SOV vice is in jeopardy. Draconian ideas for change in the way we 1/86-6/88; entered Foreign Serv¬ implementation of the FS act has do business. ice 11 /80; served as Vice Consul created obsessive careerism, Maintenance of the Current in Mexico City 7/81 -3/83; as staff displaced our fundamental prin¬ EER Form: It’s not perfect—par¬ officer in Operations Center ciple of service to the nation, ticularly if you work for a plod¬ John J. Harter 5/83-2/84; as line officer in Staff and splintered the Service into ding illiterate—but it is infinitely Secretary Secretariat 2/84-7/85; econ warring factions. The preemp¬ better than the whimsical alter¬ course 7/85-1/86; married, two tive dissolution of the Service will native discussed last year. The time is ripe for AFSA to small children. only serve to reduce its influ¬ Protection of Retirement launch a searching look at the I fully support the objectives ence in the foreign affairs arena. Benefits: We came into the serv¬ future of the Foreign Service. and goals enunciated by presi¬ The Foreign Service can contin¬ ice with a set of expectations. Obviously the AFSA board dential candidate Perry Shankle ue to perform its mission only as We have lived up to our side of should not address the sub¬ and vice presidential candidate a collegial, value drive institution the agreement. The retirement stance of policy; but it could fo¬ Evangeline Monroe, and the oth¬ that has confidence in itself, its system must be protected. cus the enormous talents of its er members of our RENEWAL membership, its management Mandatory AIDS Testing: For members on ways of bolstering team. and its employee association. It many families serving overseas, State Department inputs into The normal reaction I get is time to put an end to factional¬ the only safe, accessible source major policy decision. when mentioning AFSA to my ism. of blood during an emergency is If elected, I would urge the colleagues is either the question The incumbent Board has be¬ the American community. The board, as Priority Number One, “What has AFSA done for me?" trayed its platform promises. In¬ service should do what is neces¬ to break this challenge into or apathy and disinterest. My stead of a "lifetime career with sary to provide adequate chunks, to be parceled out to Ad personal opinion is that recently honorable retirement at an ap¬ screening to protect this re¬ Hoc Task Forces and Brain¬ AFSA has been preoccupied propriate age” many officers are source. storming Sessions, on issues with serving the interests of sev¬ being involuntarily retired. Un¬ Maintenance of the IDI Train¬ ranging from military assistance eral small factions at the ex¬ less we insist on change, the ing Program: We are in danger to international economic policy. pense of others and the Foreign process will go on until the Ser¬ of losing the IDI entry program. And I would hope Jim Bean and Service as a whole. vice has a grade profile irrele¬ This program, like the Peace Jim Derrick would help to over¬ The Foreign Service is in the vant to our mission. Corps, has provided the Agency see, coordinate, and synthesize midst of changes which threaten There is growing recognition with some of its most useful and the final recommendations. its identity. Outside threats exist of the need for professionalism productive personnel. It is worth Hopefully, one result could be in the form of reduced budgets in the management of our for¬ keeping. historic testimony by the AFSA and attempted diminution of the eign affairs. AFSA must develop Modification of Travel Proce¬ President before the Democratic FSO's role in policy formulation influential allies. I urge the elec¬ dures: Why are we paying full and Republican National Com¬ and implementation. Internally tion of the RENEWAL team so fare economy, and sitting in mittees in 1988. the Foreign Service has degen¬ that we can confront the vital is¬ steerage? Where does the dif¬ Too tall an order? Well, the erated into factions intent on sues of Service integrity, profes¬ ferential go between accommo¬ number, rank, and influence of pursuing their own objectives sional development, and a fair- dations made at Main State and Foreign Service Officers in the without regard for the effect that and predictable competitive those available elsewhere? Get 1990’s may depend upon how may have on others. The com¬ system. The RENEWAL team A.I.D. out of the travel business. we shape our collective per¬ position of the Foreign Service is proposes to: Let’s have the Agency set fare formance and public relations. increasingly changing as well. (1)deve!op esprit-de-corps; limits and allow officers to obtain Your vote for me will signal: Dual career families, tandem renewed committment; and ra¬ their own ticketing. “Let's try it!” couples, older and better edu¬ tional career progression; The A.I.D. voucher system is Professional Experience: cated entering officers raise new (2)pursue an aggressive public ridiculous. How much does the 1954-57: Consular Officer, challenges and pose problems relations campaign to develop a government pay to audit a three South Africa; 1957-59: GSO and unique to the Foreign Service. constituency for the Foreign Ser¬ day TDY? Let's establish flat Transportation Specialist, Chile; These issues as well as that of vice; (3)support management in rates and move this process to a 1959-62: Economic analyst, forced attrition must be ad¬ getting the resources the De¬ level commensurate with a for¬ U N. economic and social oper¬ dressed now if the Foreign Serv¬ partment needs to play a lead¬ eign service officer's responsi¬ ations; 1962-63: Graduate Stu¬ ice is to survive as a corps of ing role in the foreign affairs bility. dent in Economics, Harvard career professionals dedicated community; (4)insist that per¬ (M.P.A.); 1963-65: Economic to the service of the nation in for¬ sonnel policies strengthen the Development Officer, Thailand; eign affairs. career Service so as to attract 1965-66: Bulgarian Language AFSA must actively partici¬ and retain good people; (5)stop Trainee, FSI; 1966-70: Trade ne¬ pate in the search for solutions AFSA's acquiescence in the dis¬ gotiator (GATT), Geneva; 1970- to the problems of the Foreign solution of the Foreign Service; 72; Trade Policy Adviser, ARA; Service. It must determine how it (6)insist on adequate compen¬ 1973-81: Economic writer/edi¬ can act most effectively and sation for personal hardship, tor, U.S.I.A.; 1981-83: Resident then doggedly pursue that danger and family stress; ^re¬ Negotiator for North/South eco¬ course. Where it has no formal quire a thorough examination of nomic issues, Geneva; 1983-87: part to play, AFSA must assume Management’s implementation Economic consultant, oral histo¬ the role of advocate and tireless¬ of the Foreign Service Act of rian, writer/editor. ly seek to educate decision¬ 1980. makers.

54 FOREIGN SERVICE JOURNAL James A. Derrick Barbara F. Hughes Ward D. Barmon Jonathan Farrar Secretary State Representative State Representative State Representative Action Slate Action Slate Action Slate James A. Derrick joined the For¬ A graduate of Colby College Ward Barmon, an FS-1 Econom¬ I am an FS-03 economic officer eign Service and AFSA in 1974. with an M.A. from the University ic Officer, has been in the serv¬ assigned as an economic ana¬ He has served in Hong Kong as of Southern California, Ms. ice for twenty years. Overseas lyst in INR. I have been an AFSA a rotational officer, AF as an ad¬ Hughes entered the Foreign he served in Belize, Taiwan, member since joining the For¬ ministrative rover, PER as senior Service in 1980. She is an Ad¬ Thailand, and El Salvador. He eign Service in 1980. budget officer, Islamabad as ministrative Officer and has held was AFSA key man or alternate If you believe AFSA must do personnel officer, EB as a civil positions in Washington and in several of those posts. While better representing our interests aviation officer, and has been overseas. Ms. Hughes is cur¬ in Washington, Barmon partici¬ and those of the Foreign Serv¬ working in FBO as an area offi¬ rently on the AFSA Governing pated in AFSA task forces on the ice, please vote for me and the cer for AF since 1985. He has Board and was a member of the Tehran hostages and in the ef¬ other members of the renewal been awarded the Meritorious Board in 1982-3. fort to prevent the transfer of the team: Perry Shankle, Evangeline and Superior Honor Awards. He Commercial Service. As a State Monroe, Jim Bean, Gerry Lam- joined the State Standing Com¬ Standing Committee member berty, Sandra Odor, Hank Mer¬ mittee in 1983, and has been a this past year, he worked on rill, and Bruce Laingen. member of the Finance Commit¬ AFSA’s personnel proposal to As did most of us, I joined the tee and Governing Board since management. He is currently in Foreign Service to make it a ca¬ 1985. ARA/ECP in charge of the Cen¬ reer. But changes in the Service tral America and Caribbean Di¬ over the past seven years al¬ vision. ready have caused a number of my colleagues to leave. Now we are told to accept that most of us should leave before entering the Senior Foreign Service, poten¬ tially the most productive and challenging stage of our ca¬ reers. There is a better way. We need an equitable system that is fair to all ranks of the Service. Officers who cross the junior threshold and perform well in mid-career should expect to Samuel T. Mok Shelley Johnson reach high levels. The Foreign Treasurer State Representative Service Act must be implement¬ Action Slate Action Slate ed flexibly to assure competition Education: B.S. Accounting, Shelley Johnson is a State For¬ and full careers for effective offi¬ Fordham University. M.A. Ac¬ eign Service Officer who is cur¬ cers. counting, The Catholic Universi¬ rently serving in the Bureau of Management has perfected ty. Certified Internal Auditor. Diplomatic Security. She the divide and conquer tech¬ Work Experience (Corporate): served previously in Santo Do¬ nique of dealing with the Foreign Senior Auditor, major interna¬ mingo, Bonn and Monterrey. Service. It has set the ranks of tional accounting firm in NYC. Ms. Johnson is a member of the the Service against one another Director of Accounting, Time- State Standing Committee. in a scramble over the promo¬ Life Books. Comptroller and tion scraps left by the unique Treasurer, U.S. News and World management of the Foreign Report. (Government): Captain, Service Act, AFSA has been sin¬ U.S. Army (with assignments as gularly ineffective in countering intelligence officer in Japan and this strategy. Our opposition, as advisor, ARRI, at U.S. Military the "action slate," is a reincarna¬ Academy, West Point). Foreign tion of the old "unity” slate which Service Officer, U.S. Depart¬ has proven incapable of dealing ment of State. Comptroller, U.S. with the implications of the For¬ Department of Treasury. eign Service Act. Please vote for the members of the renewal team.

APRIL 1987 55 Matthew P. Daley Sandra Odor Michael Zak William B. Flynn Jr. State Representative State Representative AID Representative AID Representative Action Slate Action Slate 1968-71 U.S. Army; 1971-76 Raised, educated and em¬ Michael Zak is a Program Offi¬ I will seek to muster support from Dept, of Treasury; 1976 Dept, of ployed in Burbank, California. I cer/Coordinator in the Bureau A.I.D/'Hill" to return to a more State FSO-7; 1976-77 AM/FC; joined the Foreign Service as a for Program and Policy Coordi¬ objective FS personnel system 1977-80 ACDA/MA/IR; 1980FSI; Secretary in 1971.1 served over¬ nation. He joined AID in 1965 (e.g., assignments based on 1981-83 POLOFF, Izmir, Turkey; seas in all five of our geographic and has served in Dar es Sa¬ merit and individual qualifica¬ 1983 FSI; FS-2 1983; 1984-86 bureaus. After passing the FSO laam, Lagos, Accra, Santo Do¬ tions). The assignment system POLOFF Bangkok; 1986 exam and training in Washing¬ mingo, Panama and in various functions with major depend¬ EAP/TB. AFSA member since ton, I was sent to Mexico City in Washington assignments. He ence upon the desires of the 1976; member State Standing JORP Consular/Personnel rota¬ currently is serving on the AID Mission Director leaving little de¬ Committee and Governing tion, and am now assigned to Standing Committee. cision making power to the As¬ Board 1978-80. the Operations Center in Wash¬ signment Board to place the ington. most qualified candidate, result¬ As a 15-year veteran of the ing in the “fallout" of many FSO's Foreign Service in staff and offi¬ 55 and over, minorities and oth¬ cer positions, I can bring the ers remaining with little or no op¬ perspective of both to AFSA. I portunity for advancement. know what it is to serve in small, Assignments and promotions out-of-the-way posts such as should be made within the ranks Papua New Guinea and large, of qualified FSO's prior to ap¬ sought-after posts such as Par¬ pointing political/contract per¬ is. I have seen the service sons. change considerably—for bet¬ The present A.I.D. “Awards ter and for worse—and believe System" should be based on further changes are necessary. I merit. I will seek an "Award Sys¬ will work with the AFSA team to tem" that is selective of those further the goals and objectives "truly deserving” including per¬ of all the members, wherever sonnel at lower ranks (especially they serve. FS-4 and below). Finally, AFSA should monitor State's policy of maintaining vital services and security for FSO's and families. David Garms Bill spent his earlier years AID Representative working on a ranch before enlist¬ Action Slate ing in the Army at 17 becoming a David Garms is the Sri Lanka WWII paratrooper. He finished Desk Officer in the Asia Near Cal Poly in 1950. East Bureau. He joined AID in His working career has includ¬ 1967 and has served in Bangla¬ ed Agronomy, livestock produc¬ desh, Vietnam, the Philippines tion, and wholesale and retail and Malawi. He is currently serv¬ petroleum sales/dist. He served ing on the AID Standing Com¬ as Chief of Ento., 3rd and 4th mittee. Corps, So. Vn., 1969. Flynn spent 10 years with USDA, FmHA, 3 years as district direc¬ tor over 5 loan offices. Bill joined A.I.D. Oct. 1978 serving as an ADO in Ghana and Tanzania. He has been at A.I.D./Wforthe last 2-Vz years as an ADO with AFR/TR/ARD/FS. Flynn intends to be alert to the concerns of A.I.D. constituents' demands and take action ac¬ cordingly.

56 FOREIGN SERVICE JOURNAL Notice:No statements were re¬ ceived by the issue deadline from the following candidates:

John Allen Quintus Roger A. Provencher Gerald Lamberty USIA Representative Retired Representative State Representative Action Slate Action Slate Born: Washington, D.C. 1943. Experience includes Berlin, Bruce Lalngen Educated: Washington-Lee Bangui, Benghazi, Chiengmai, Retired Representative High School; University of North Genoa, Geneva, Frankfurt, Kob¬ Carolina at Chapel Hill, AB with lenz, Leopoldville, Lome, Mon¬ John Thomas Honors; Harvard University, treal, Moscow, Ouagadougou, Retired Representative MAT; University of Delaware, Rome, Tehran, and Vientiane. Ph.D. Reached FSO-1 in 1974. He also Taught college English, 1969- spent three years with USIA as 1980. Joined Foreign Service: Assistant Commissioner Gener¬ 1980. Public Affairs Trainee: al at Montreal’s EXPO ‘67. Sec¬ Australia 1981-82. Assistant onded to be the senior American Cultural Affairs Officer, Federal on the staff of ITU/U.N., Geneva, Republic of Germany, 1982-85. for 5-Vfe years. NWC 1970. Program Planning & Policy Offi¬ Served the retired member¬ cer, E/AE, 1985-. ship as Board Member for the AFSA Member since 1983; past 4 years. Active member Board Member since August since AFSA's early days. Re¬ 1986. ceived three honor awards. Ex¬ tensive contact with members of Congress.

Earl D. Sohm Retired Representative Action Slate 1976-1985: Inspector, Joint In¬ spection Unit of the United Na¬ tions. 1975-1976: Director of Management Operations (As¬ sistant Secretary Level). Served as Deputy to the Deputy Under Secretary for Management (Lawrence S. Eagleburger). 1974-1975: Special Assistant to the Deputy Under Secretary for Management. 1971-1974: Dep¬ uty Chief of Mission of American Embassy, London. 1965-69: Deputy Chief of Mission, Ameri¬ can Embassy, the Hague. Joined State in 1946 and held various positions in the Office of the Secretary, including Chief of the Committee Secretariat Staff.

APRIL 1987 57 ASSOCIATION HEWS

that the regulations were appli¬ Pact reached cable only to those employees AFSA meets Brookings Institution with AID on whose travel orders were issued subsequent to the agreement's consumables effective date. AFSA filed an in¬ stitutional grievance before the A resolution has finally been Foreign Service Grievance reached in a long-standing dis¬ Board to force the agency to pute with AID management over properly implement the agree¬ the consumables allowance for ment. employees at hardship posts. AFSA eventually won the A new consumables agree¬ grievance, forcing AID to align ment negotiated by AFSA and its interpretation of the consum¬ the foreign affairs agencies took ables regulations with AFSA's. AFSA Congressional Liaison Rick Weiss (second from left) makes a effect on July 12, 1985. The However, in implementing the point to members of the Brookings Institution foreign policy division agreement allows employees Grievance Board’s order, AID In one of a series of luncheons the Association Is sponsoring with 2500 pounds of consumables added an arbitrary provision prominent Washington think tanks. per tour, as opposed to 1000 stating that newly eligible em¬ pounds under the old provi¬ ployees—those who had been sions. The new regulations also previously denied the consum¬ Grievance seeks pay promised authorize an additional consum¬ ables allowance due to AID'S ables allowance for employees misinterpretation of the regula¬ to members of secretarial class who sign up for extensions or tions—would not be entitled to second tours at post. the allowance if they had less AFSA has filed a grievance on establish lower limits on salaries All of the agencies except AID than six months left at post. behalf of members of the Febru¬ to be offered to future Foreign agreed with AFSA's understand¬ AFSA vigorously protested ary 1986 class of Foreign Ser¬ Service secretarial candidates. ing that the new regulations AID'S action in a letter to the vice secretaries, who have been By the time they finally learned of should apply to any employees Grievance Board, which re¬ denied salary levels promised the decision not to honor the ear¬ who arrived at post on or after sponded by ordering that the of¬ them during the recruitment lier promises, it was too late for the effective date of the agree¬ fending passage be deleted. process. them to change their plans; they ment, regardless of the date on AID has since complied with the The secretaries had been in¬ had no choice but to accept the which their travel orders were is¬ order and has appropriately no¬ formed by the State Department department’s reduced salary of¬ sued. AID contended, however, tified the field. throughout their recruitment that fer. their salaries would be matched AFSA has repeatedly protest¬ upon entry in the Foreign Ser¬ ed the fact that these secretaries Court backs State plaintiff, refutes vice. The Bureau of Personnel were not notified of the depart¬ sent them a publication stating ment's change in policy suffi¬ Grievance Board determination that candidates whose annual ciently in advance of their date salaries are higher than the en¬ of entry, but management has AFSA has won a long-standing was this action that prompted trance level for FS-9 or FS-8 may failed to remedy the situation. case in which a State Depart¬ AFSA to file-a complaint with the be appointed at a salary that This inaction has left the Associ¬ ment employee's position was U.S. District Court for the District most closely approximates their ation with no option but to file a reclassified without his knowl¬ of Columbia. previous earnings, This point grievance on behalf of those af¬ edge. This administrative error The court's decision affirmed was reiterated in a letter from fected. prevented him from receiving the Grievance Board's findings State in November 1985 which any promotions for 10 years. of fact, but vacated the panel's stated that “salaries of new For¬ The employee originally filed a determination that the plaintiff eign Service employees are Pages missing grievance to remedy his situa¬ was not entitled to any relief. The generally determined by the tion in 1980. The State Depart¬ court found that the board had base salary earned for a 90-day in retiree ment denied the grievance. used an unacceptable method period. The Department of State Upon appeal, the Foreign Ser¬ in determining that the employ¬ will meet that salary provided it directory vice Grievance Board found that ee would not have received any is within the range of salaries the employee had been misled promotions even if he had been available for the grade to which Due to a production error, many and misinformed by the depart¬ properly informed of his posi¬ appointed.” This letter con¬ copies of the 1986 AFSA DIREC¬ ment, despite his diligent efforts tion's reclassification. As a re¬ firmed previously stated verbal TORY OF RETIRED MEMBERS have to discover the reason for his sult, the court ordered that the commitments. missing pages. lack of promotion. The board department either reconstitute The affected secretaries We apologize for these incom¬ also concluded, however, that Selection Boards for the 10 made irreversible decisions to plete editions and any inconve¬ the employee would not have years in question, or grant the leave their previous jobs based nience they may have caused. If been promoted anyway and re¬ same average number of pro¬ on these statements. They were your copy is affected, please let fused to grant him any retroac¬ motions as members of his class never appropriately informed of us know and we will gladly send tive promotions or back pay. It with comparable records. a November 1985 decision to a replacement.

58 FOREIGN SERVICE JOURNAL Donna Oglesby, Lee Lederer, and Al Ball discuss OERs at a panel Panel presents hints on discussion sponsored by AFSA's USIA Standing Committee. preparing OERs in USIA

Obtaining a good performance the responsibility of selection rating on your annual Officer board members. The panel is a Evaluation Report is a mixture of collective audience, he said, “a art and science, according to a command performance that panel of experts assembled by lasts six to eight weeks in a win¬ AFSA's USIA Standing Commit¬ dowless, stuffy room." Panelists tee. The group held forth before are human beings who need in¬ a crowd of 50 agency employ¬ terest and appeal in the hun¬ ees in the Capitol Hill Holiday Inn dreds of OERs to distinguish be¬ last May, and we are presenting tween them. That placed a their recommendations now to responsibility on rating officers be of use in the 1987 cycle. to keep the separate sections of AID follows union lead Keep a "kudos" file and make the OER clearly associated with your position description as full the discrete aspects'of a posi¬ in amending EER form and ample as possible, advised tion's full requirements. Rated Donna Oglesby, director of the officers should realize it is to AFSA’s AID Standing Commit¬ employment which must be ne¬ Office of American Republics their advantage when their OER tee has reopened negotiations gotiated with the standing com¬ Affairs, at the event. She recom¬ also includes a review, since this on revising the EER form. Agem mittee. AFSA added that chang¬ mended that officers ensure that relieves the monotony—particu¬ cy management withdrew a revi¬ ing a rating cycle already in their listed work requirements larly if the rater is a poor writer. sion proposed last September progress would disrupt year¬ reflect the full scope of their job, “A refreshing style is greatly ap¬ and has adopted AFSA's pro¬ long work objectives and the while making sure they are as preciated by the panels," he posal that the current EER form timing of mid-cycle reviews. The specific and action-oriented as said, as are specific comments serve as the basis for any modifi¬ standing committee remains possible. She advised the audi¬ addressing the officer’s role in cations. Copies of the latest pro¬ open to the question of altering ence to take the initiative to have advancing Washington's inter¬ posal were recently transmitted the 1987-88 rating cycle and a mid-year review with their su¬ ests and the agency's goals. He to the field for comment. welcomes members' comments pervisor and to keep track of ex¬ stressed the need to include In a related development, AID on the subject. tra service activities not directly anecdotes but to limit verbosity. has dropped plans to move the Revising the EER form was related to their job description. “Keep those sentences under end of the current rating cycle first proposed in February 1985 Finally, Oglesby suggested that 15 words." forward two months, from May when AID management present¬ officers review draft OERs with During an extended question 31 to March 31. AFSA had pro¬ ed the committee with a com¬ their supervisor and ensure that and answer session, Lederer tested that the proposed pletely revamped format. The the final result is uncrowded and said that candor is good in re¬ change affected conditions of committee rejected the form divorced of inadmissible com¬ ports, but that a single weak¬ based on near-unanimous ments—"don't bitch, brag, or ness tends to jump out at the membership opposition, and bash others," she concluded. panel unless properly handled. suggested that the current form Lee Lederer, senior program "The rating officer needs to be serve as the basis for revisions. officer in the Office of Television candid but tactful,” added Ball. AFSA turns Management responded in¬ and Film Services, said that rat¬ “You can damn an officer by over cover stead last September with a ing officers should write the faint praise.” Ball and Oglesby slight modification of its earlier OERs, not the rated officer. He differed somewhat on foreign slides to State proposed form. tod recommended a mid-year language training. While the AFSA strongly opposed the review and that work require¬ panels consider the last five The Association has voluntarily new form. Comments from the ments be spelled out clearly. He years of reports, “language turned over all the slides shot for field solicited by the committee also concurred with Oglesby training is considered as dead the cover of the February issue objected to the form's complex¬ that rated officers should keep time," said Oglesby, “You have of the JOURNAL to the State De¬ ity and emphasis on quantitative files on their achievements and to build it into your career plan¬ partment Bureau of Diplomatic rather than qualitative perform¬ review the draft report with their ning." But “the panels now have Security. The cover, which fea¬ ance. In response, the commit¬ supervisor. He said that the rat¬ no problem with language tured a photograph of Under tee reiterated its position that ing officer needs to establish study,” said Ball. “The entire file Secretary for Management Ron¬ modifications should be made to what the object of the review is to is considered, not just the last ald I. Spiers, may have inadven the current form. be—promotion, satisfactory rat¬ year." ently contained classified in¬ The newest proposal reorga¬ ing, or unsatisfactory rating— The chairman of USIA’s formation from a document nizes the current form. Major and write the report with that in Standing Committee said that appearing on Spiers's desk. changes include detailed direc¬ mind, while making sure the only 25 percent of OERs have AFSA felt its action was in the tions for all sections, and a re¬ conclusion is adequately docu¬ up-to-date Professional Experi¬ interest of national security. It duction in the number of Gener¬ mented. "How well the rating of¬ ence Profiles. He said that 60 also felt that First Amendment is¬ al Appraisal blocks in the ficer writes makes a big differ¬ percent of officers ranked at FS- sues were not at stake as the Evaluation of Potential section. ence with the panel," he said. 4 were promoted in 1985, 32 slides were not used as source Members and missions interest¬ The desired effect “should jump percent of the FS-3s, 12 percent material for the article but were ed in reviewing and commenting off the page." of the FS-2s, and 7 percent of merely illustrations, and there on the new form should contact Al Ball, who was then deputy the FS-1s. At the OC level, the had been no effort by the gov¬ the AID Standing Committee or director of the Office of Private promotion rate dropped to 4 ernment to prevent publication Gerry Kuniio in Room 3644, Sector Programs, addressed percent. or distribution of the issue. Main State, phone 647-8160.

APRIL 1987 59 under FSRDS. On the other hand, Legislative Alert unless an individual can meet FSRDS or FSPS: To Switch or Stay Put? the requirements necessary to realize such an increase under the new system, that person may be better off staying with By Robert Beers, Congressional Liaison Officer the old one. Thus, a decision to switch to FSPS or stay put under FSRDS in¬ Pre-1984 Foreign Service em¬ able under the new FSPS is a is this element of FSPS that af¬ volves many considerations— ployees, now covered under the more complex process. To be¬ fords employees a new flexibility assumptions about your future Foreign Service Retirement and gin with, two of the three ele¬ in determining the level of their employment and salary record, Disability System—FSRDS—have ments composing the structure post-retirement income. how you will stand vis-^-vis the option of transferring to the of FSPS involve a number of varia¬ So, in weighing the advisabil¬ qualifying for Social Security new Foreign Service Pension bles. First, Social Security. In ity of transferring from FSRDS to benefits, the age at which you System—FSPS—during a six- general, anyone born after 1928 FSPS, employees can estimate intend to retire, etc. Indeed, the month period between July 1 has to have 40 quarters (10 with relative ease the amount of complexities are such that arriv¬ and December 31. This is a one¬ years) of employment covered post-retirement income accru¬ ing at an informed decision re¬ time opportunity, and the deci¬ by Social Security to qualify for ing to them from their years of quires expert guidance pro¬ sion to transfer, once made, is its benefits. But there's a catch. service under the old system. vided by those thoroughly irrevocable. Consequently, it is Under the “windfall benefit” pro¬ Next, however, they must make familiar with the intricacies of the not a matter to be treated lightly. vision of the Social Security law, assumptions as to the number of new one plus a consideration of The decision merits serious and anyone with less than 30 years years they will be working under all the factors to be considered careful investigation by anyone of “covered” employment faces FSPS, how much Social Security in evaluating a transfer. Retire¬ entitled to make this change, a reduction in their primary So¬ credit they will accrue, and the ment experts in the State De¬ whether at first glance it appears cial Security benefit. For anyone extent to which they will partici¬ partment are putting the finish¬ to be personally advantageous with less than 26 years the re¬ pate in the thrift plan. ing touches on a program to or not. Aside from the obvious duction can be quite substantial. There are other consider¬ provide this guidance. It will differences between the struc¬ Obviously, the number of years ations that should be taken into include individualized computer ture of the two systems, there of Social Security coverage account in arriving at a decision print-outs estimating the per¬ are a number of provisions in the credited to a Foreign Service whether or not to transfer to FSPS. centage of pre-retirement in¬ new FSPS which may not be read¬ employee, either from service Do you plan to work in a non- come resulting from continuing ily apparent until one begins to under the new system or from federal job after retirement? If coverage under FSRDS com¬ examine the fine print. previous outside employment, so, your Social Security supple¬ pared with that following a trans¬ Estimating one's basic retire¬ constitutes an important factor in ment, or payment, may be re¬ fer to FSPS. Private retirement¬ ment annuity under the old FSRDS estimating one's post-retirement duced. Under present law, cost- consulting firms can also involves a fairly straightforward income under FSPS. of-living adjustments are fully provide these individualized calculation: two percent of the The supplemental annuity ele¬ payable to those retiring under print-outs for a modest fee. In average salary over the three- ment, the second tier in FSPS, is FSRDS; for those retiring under addition to these resources, highest consecutive salary relatively easy to figure. This FSPS, the COLA is specified, es¬ AFSA is prepared to assist its years times the number of years benefit is calculated at 1.7 per¬ sentially, as the rise in the Con¬ members by providing any pos¬ of creditable federal service. cent of the high-three for the first sumer Price Index minus one sible additional information that Anyone considering a transfer 20 years of service under FSPS, percent. will help them reach a decision over to the FSPS can regard their plus 1 percent for each year For many pre-1984 employ¬ in this matter. Whatever you fi¬ time served under the old sys¬ served in excess of 20 years. ees, transferring to FSPS could re¬ nally decide, however, you tem as a separate unit, terminat¬ Finally, an estimate of the re¬ sult in a significant increase in should give serious, thoughtful, ing at the time that their transfer tirement benefits to be realized their retirement benefits com¬ and informed consideration to to the new one becomes effec¬ from the third tier of FSPS, the pared with what they would real¬ making the choice. It is a one- tive. For example, an employee Thrift Plan, rests upon a series of ize by continuing their coverage I time opportunity. with 15 years of service under suppositions and assumptions. FSRDS electing to switch over to Each Foreign Service employee FSPS would transfer an accrued covered under FSPS can desig¬ your reply, please do so as soon retirement credit of 30 percent nate up to 10 percent of pay to Sign up now as possible since space is limit¬ (2 percent times 15 years) of his be deposited in his or her thrift/ for FS Day ed. or her average high-three salary, savings account, tax deferred. Please come prepared to whether attained under either The government matches up to Brunch raise issues of concern to you system. Additionally, those 15 5 percent of the amount deposit¬ and to receive a summary of years of federal service under ed (dollar for dollar for the first 3 AFSA's annual Foreign Service AFSA's activities since our meet¬ the old system would be cred¬ percent and 500 on the dollar for Day Brunch, a homecoming ing last May, as well as those we ited towards the years required the next 2 percent), and employ¬ event for the retired Foreign Ser¬ have planned for the next 12 for retirement under the new ees can choose among several vice community, is scheduled months. We look forward to see¬ one. For those who elect to options for the investment of the for Saturday, May 2. AFSA is ing all of you again this year. transfer, their final retirement funds accruing in their thrift/sav¬ currently receiving reservations As usual, on hand will be benefit would consist of the ings accounts. The amount de¬ for the brunch from the invita¬ AFSA's congressional liaison of¬ benefit earned under the old posited in the thrift plan and the tions that were included in the ficers, Robert Beers and Rick FSRDS added to that earned un¬ designation of investment op¬ State Department Foreign Ser¬ Weiss, who can answer your der FSPS. tions may be changed during an vice Day packet retirees have questions on retirement issues Estimating the benefits pay¬ open season every six months. It received. If you have not sent in and other concerns.

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