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P U B L I S H E D BY T H E A M E R I CA N F O R E I G N S E R V I C E A S S O C I AT I O N MARCH 2018
SPOTLIGHT ON FAMILIES
TIME FOR A
NATIONAL CONVERSATION
ZIMBABWE AFTER MUGABE
FOREIGN
SERVICE
#
March 2018 Volume 95, No. 2
Cover Story
Message
30 from the Hill
#StateToo: Ending Harassment
at the State Department 18
The problem of sexual harassment is persistent and real at State. Time for a National
It’s time for meaningful change. Conversation
By Leslie Bassett By Senator Lindsey Graham
Focus on Foreign Service Families
Feature
ISTOCKPHOTO.COM/ANDREYPOPOV
35 45
Still Waiting: Singles Speak
Family Member Here is a medley of perspectives on
Employment Today what it is like to be single and serving
FS family members and posts feel at a U.S. mission overseas.
the impact of not being able to fill B y M i k k e l a V. T h o m p s o n
many essential positions.
By Debra Blome
40
Surviving Divorce 52
in the Foreign Service Zimbabwe
Divorce is difficult enough when After Mugabe:
you’re living a “normal” life in the Dark Before the Dawn?
States. What happens when A former U.S. ambassador to
you’re posted overseas? Zimbabwe reflects on the November
By Donna Gorman 2017 coup in that country and
wonders: How did he miss the signs
that it was coming?
By Charles Ray
THE FOREIGN SERVICE JOURNAL | MARCH 2018 5
FOREIGN
CONTACTS
SERVICE
www.afsa.org
Editor in Chief, Director of Publications
Shawn Dorman: dorman@afsa.org
Managing Editor
Susan Brady Maitra: maitra@afsa.org
Associate Editor
Donna Gorman: gorman@afsa.org AFSA Headquarters: BUSINESS DEPARTMENT
Publications Coordinator (202) 338-4045; Fax (202) 338-6820 Director of Finance
Dmitry Filipoff: filipoff@afsa.org State Department AFSA Office: Femi Oshobukola: oshobukola@afsa.org
(202) 647-8160; Fax (202) 647-0265 Controller
Ad & Circulation Manager
USAID AFSA Office: Kalpna Srimal: srimal@afsa.org
Ed Miltenberger: miltenberger@afsa.org
(202) 712-1941; Fax (202) 216-3710 Assistant Controller
Art Director FCS AFSA Office: Cory Nishi: cnishi@afsa.org
Caryn Suko Smith (202) 482-9088; Fax (202) 482-9087 Administrative Assistant and Office Manager
Advertising Intern Ana Lopez: lopez@afsa.org
GOVERNING BOARD
Chenxiao “Johnny” Liu: adintern@afsa.org
President COMMUNICATIONS AND MEMBERSHIP
Editorial Board Hon. Barbara Stephenson: Director of Communications and Membership
Eric Green, Chair stephenson@afsa.org Ásgeir Sigfússon: sigfusson@afsa.org
James “Jim” Bever Secretary Online Communications Manager
Angela Bond Hon. Tom Boyatt: tdboyatt@gmail.com
M. Allyn Brooks-LaSure Jeff Lau: lau@afsa.org
Treasurer Outreach and Communications Specialist
Lawrence Casselle
Hon. Earl Anthony “Tony” Wayne: Allan Saunders: saunders@afsa.org
Shawn Kobb
WayneEA@gmail.com Awards Coordinator
Alexis Ludwig
Suzanne McGuire State Vice President Perri Green: green@afsa.org
John G. Rendeiro Jr. Ken Kero-Mentz: keromentzka@state.gov Outreach Coordinator
Priyadarshi “Pri” Sen USAID Vice President Catherine Kannenberg: kannenberg@afsa.org
Dinah Zeltser-Winant Ann Posner: aposner@usaid.gov Retiree Outreach Coordinator
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Daniel Crocker: Daniel.Crocker@trade.gov Retiree Counselor
THE MAGAZINE FOR FOREIGN AFFAIRS FAS Vice President
PROFESSIONALS Todd Thurwachter: thurwachter@afsa.org
Kimberly Svec Sawatzki: kim.sawatzki@usda.gov Member Accounts Specialist
The Foreign Service Journal (ISSN 0146-3543),
2101 E Street NW, Washington, D.C. 20037-2990 is Retiree Vice President Vacant
published monthly, with combined January-February John K. Naland: nalandfamily@yahoo.com
and July-August issues, by the American Foreign Service State Representatives
Association (AFSA), a private, nonprofit organization. LABOR MANAGEMENT
Material appearing herein represents the opinions of the
Lawrence Casselle General Counsel
writers and does not necessarily represent the views of Anne Coleman-Honn Sharon Papp: PappS@state.gov
the Journal, the Editorial Board or AFSA. Writer queries Josh Glazeroff Deputy General Counsel
and submissions are invited, preferably by email. The Martin McDowell
Journal is not responsible for unsolicited manuscripts, Raeka Safai: SafaiR@state.gov
photos or illustrations. Advertising inquiries are invited. Tricia Wingerter Senior Staff Attorneys
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AFSA reserves the right to reject advertising that is not Madeline Williams
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ance of advertisements herein does not imply endorse-
FCS Alternate Representative Labor Management Counselor
ment of goods or services offered. Opinions expressed in Matthew Hilgendorf Colleen Fallon-Lenaghan:
advertisements are the views of the advertisers and do FAS Alternate Representative FallonLenaghanC@state.gov
not necessarily represent AFSA views or policy. Journal Thom Wright
subscription: AFSA member–$20, included in annual Grievance Counselor
dues; student–$30; institution–$40; others–$50; Single BBG Representative Jason Snyder: SnyderJ@state.gov
issue–$4.50. For foreign surface mail, add $18 per year; Steve Herman Senior Labor Management Advisor
foreign airmail, $36 per year. Periodical postage paid APHIS Representative
at Washington, D.C., and at additional mailing offices. James Yorke: YorkeJ@state.gov
J.J. Hurley Labor Management Advisor
Indexed by the Public Affairs Information Services (PAIS).
Retiree Representatives Patrick Bradley: BradleyPG@state.gov
Email: journal@afsa.org Hon. Alphonse ‘Al’ La Porta Executive Assistant
Phone: (202) 338-4045 Philip A. Shull Jaya Duvvuri: DuvvuriV@state.gov
Fax: (202) 338-8244
USAID and FCS Staff Assistant
Web: www.afsa.org/fsj STAFF Christine Rose: crose@usaid.gov
© American Foreign Service Association, 2018 Chief of Strategic Initiatives
Linnea Gavrilis: gavrilis@afsa.org PROFESSIONAL POLICY ISSUES
PRINTED IN THE U.S.A. Chief Operating Officer Director of Professional Policy Issues
Postmaster: Send address changes to Russ Capps: capps@afsa.org Julie Nutter: nutter@afsa.org
AFSA, Attn: Address Change Special Assistant to the President Program Assistant
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ADVOCACY
Director of Advocacy
Mary Daly: daly@afsa.org
6 MARCH 2018 | THE FOREIGN SERVICE JOURNAL
FOREIGN
SERVICE
Perspectives 91 Departments
Reflections
8 Lucky That Time:
Escapes from Animals 11 Letters
President’s Views
By John Pielemeier
Does America Spend 15 Letters-Plus
Too Much on Diplomacy?
By Barbara Stephenson
20 Talking Points
50 FS Know-How
10
Letter from the Editor 74 In Memory
Checking In with 81 Books
Foreign Service Families
By Shawn Dorman
Marketplace
26
Speaking Out
Families with
94 85 Classifieds
Local Lens
Special Needs Kids 87 Real Estate
Reykjavík, Iceland
Need Support
By Janice Anderson 90 Index to Advertisers
By Kathi Silva
AFSA NEWS THE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATION
57 AFSA Memorial Ceremony and 67 A Housing Victory
Rolling Moment of Silence 67 2017 AFSA Tax Guide—
57 Foreign Service Day Is May 4 Corrections
58 State VP Voice—Find Your Inner 68 Call for Nominations:
Advocate 2018 Constructive
59 USAID VP Voice—Senior Dissent Awards
Leadership Must Support Its
Workforce 64 68 Last Call for AFSA
Scholarship Applications
60 FAS VP Voice—Training Should 69 Call for Nominations:
Not Be a One-Time Event 2018 Performance Awards
60 The “Bidder’s Matrix” for Same-Sex Spouses 70 Notes from Labor Management—Answers
61 Where We Stand—Engaging AFSA Members to All of Your LM Questions
61 AFSA Welcomes COO Russ Capps 71 Retiree Corner—Meet Your Retiree Counselor
62 AFSA: 2017 Treasurer’s Report 72 AFSA Governing Board Meeting, December 2017
64 AFSA Outreach: 2017 in Review 72 Book Notes—Peacemakers: American Leadership
and the End of Genocide in the Balkans
66 Notes from Labor Management—Know Your
Rights: Sexual Assault and Sexual Harassment 73 AFSA Governing Board Meeting, January 2018
On the Cover: Cover design and composition by Caryn Suko Smith, Driven By Design LLC; Backgound—iStockphoto.com/asafta. Top left—Foreign Service Specialist Matt Roy and daugh-
ter Malosi learn to make dumplings at Mahota Farm on Chongming Island, China. Photo by Kelly Roy. Top right—Wesley and Emmeline McIntyre, children of FS member Dominic McIntyre,
celebrate their birthday in Bishkek, Kyrgyzstan, with family members back home in the States via Skype. Photo by Melinda McIntyre. Bottom—Regional Medical Officer Chad Faber says
goodbye to his daughter Elena at the Taoyuan International Airport in Taipei, Taiwan, as she returns to college in the United States following the Christmas holidays. Photo by Kris Faber.
THE FOREIGN SERVICE JOURNAL | MARCH 2018 7
PRESIDENT’S VIEWS
Does America Spend Too Much
on Diplomacy?
BY BA R BA R A ST E P H E N S O N
I
ended my last column, a holiday
message written with special thoughts
of our colleagues deployed far from
home, with a wish for a strategy to
guide our work on behalf of the Ameri-
can people. That has arrived by way
of the new National Security Strategy.
While the NSS may not define clearly
America’s role in the world, it neverthe-
less makes a powerful case for the indis-
pensable role of American diplomacy
and development.
This column will explore the National
Security Strategy and the related question
of whether America spends too much
on diplomacy. Even though budgets are The 2018 budget proposal would take
Core Diplomatic
complicated beasts, I ask that you stay spending on core diplomatic capabil-
Functions Defined
with me so that you, stewards of this great ity down further, to 69 cents of the 2008
institution, are able to speak authorita- dollar. State Department Congres-
tively about this vitally important issue. Even when we account for shifts in sional Budget Justifications (CBJs)
Here’s the bottom line: The annual how the CBJ reports costs, spending on contain a consistent budget category
Congressional Budget Justifications for core diplomatic capability in 2016 was still named Ongoing Operations. This
the State Department show clearly that below 2008 spending in nominal terms. If budget category represents what
spending on core diplomatic capability we then factor in inflation, 2016 spending the department describes as its
actually declined over the last decade (see on core diplomatic capability was only “core” diplomatic functions, defined
chart and sidebar). about 77 percent of 2008 spending. as “in-depth knowledge and under-
If we compare 2008, the last full year of So much for the narrative of runaway standing of political and economic
the Bush 43 administration, to 2016, the growth in spending on diplomacy. When events in many nations [as a] basic
last year for which actual spending figures we look at the numbers, the picture that requirement of diplomacy,” through
are available, the decline in spending on emerges is one of a capability that has “reporting, analysis and personal
core diplomatic been starved of resources for years. contact work,” as well as through
capability is Yes, the overall budget has increased, public diplomacy activities “intended
dramatic—from with the growth in security costs a major to understand, inform and influence
one dollar in 2008 factor. Spending on Worldwide Security foreign publics and broaden dialogue
to just 76 cents in Protection was 17 percent of the total between American citizens institu-
2016, in nominal, “Diplomatic and Consular Programs” tions and [our] counterparts abroad”
non-inflation budget in 2008. As the 2018 CBJ shows, (FY2002 CBJ Submission for the
adjusted terms. by 2016 WSP had grown to 41 percent of Department of State, p. 16).
Ambassador Barbara Stephenson is the president of the American Foreign Service Association.
8 MARCH 2018 | THE FOREIGN SERVICE JOURNAL
Spending on core diplomatic capability Where is the national conversation
actually declined over the last decade. now? That is precisely what Senator
Lindsey Graham, chairman of the State,
Foreign Operations and Related Programs
Subcommittee of the Senate Appro-
the total D&CP budget, while the share The president’s cover letter states: “The priations Committee, is calling for in his
for core diplomacy was squeezed to 59 United States faces an extraordinarily Message from the Hill in this issue of the
percent. dangerous world, filled with a wide range Journal (see p. 18).
The proposed budget for 2018 con- of threats that have intensified in recent I remind you that the report from
tinues this trend, with WSP growing to years.” The NSS is unequivocal on the that subcommittee (approved by a 31-0
45 percent of total D&CP spending while “indispensable” role of diplomacy: vote in the full Appropriations Com-
core diplomacy declines further, to 55 “America’s diplomats are our forward- mittee) rejected the proposed cuts to
percent. deployed political capability, advancing State funding as a “doctrine of retreat”
Given that State provides the operating and defending America’s interests abroad.” and instructed that appropriated funds
platform for all executive-branch person- “Our diplomats must be able to build “shall” be used to maintain State staffing
nel posted to embassies and consulates, and sustain relationships. … Relation- at Sept. 30, 2016, levels and to resume
this growth in Diplomatic Security is not ships, developed over time, create trust entry-level hiring.
surprising. But we should not mistake and shared understanding that the United Yet even in the face of this clear expres-
increased spending to support the States calls upon when confronting sion of congressional intent, this explicit
executive-branch platform with spending security threats, responding to crises, and rejection of deep cuts to State’s budget,
on core diplomatic capability. encouraging others to share the burden the depletion of the Foreign Service
The fact is that spending on core for tackling the world’s challenges.” continues.
diplomatic capability has declined. I’ve “We must upgrade our diplomatic The Foreign Service officer corps at
seen this reflected in what I have heard in capabilities to compete in the current State was down to 7,940 at the end of
structured conversations and in leader- environment.” December, from 8,176 in March 2017, a
ship classes. Political, economic and The NSS makes clear that America drop of 236.
public diplomacy sections in embassies faces many threats and needs upgraded The loss is heavily concentrated at the
are generally so thinly staffed—many diplomatic capabilities. Yet the proposed top. With Career Ambassador Tom Shan-
have not been restored after the “Iraq tax” budget would cut diplomatic capac- non’s departure, State’s four-star ranks
a decade ago—that not only does mentor- ity even further, compounding the loss will be down to just one, from six at the
ing suffer, but so does the high-impact sustained over recent years of scarce end of 2016.
diplomacy that underpins our global resources. The number of Career Ministers (three-
leadership role. The last time America reduced its stars) has fallen from 33 in December
By the time required reports are writ- diplomatic capacity sharply (though not 2016 to 18 today. And Minister Counselors
ten, required demarches delivered and as sharply as today) was in the mid-1990s. (two-stars) are down from 470 to 373 dur-
visits handled, depleted sections have The Berlin Wall had come down, America ing the same period.
little capacity for the crucial diplomatic had “won” the Cold War, and the logic The answer to the question of
work of building up the bank account of was that we could afford to scale back on whether America spends too much on
relationships and trust. diplomacy. There was a national conver- diplomacy is No. And so the question
As a career diplomat, I have long sation, and Congress cut funding for State. “Why make such cuts?” remains as
lamented this as a penny-wise, pound- History has shown how short-sighted pressing today as it was in November
foolish approach to maintaining Amer- those 1990s cuts were. They ultimately pro- when I first asked.
ica’s global leadership. How reassuring, duced the dire staffing shortages we faced We urgently need a national conversa-
then, that the new National Security a decade ago when we needed a deep tion about the dismantling underway of a
Strategy makes such a clear case for bench of seasoned Foreign Service leaders vital instrument of national security. The
diplomacy. to staff the Iraq and Afghanistan wars. American people deserve one. n
THE FOREIGN SERVICE JOURNAL | MARCH 2018 9
LETTER FROM THE EDITOR
Checking In with Foreign Service Families
B Y S H AW N D O R M A N
T
here are so many facets to the The Journal seeks to spotlight topics of concern
issues faced by Foreign Service
families, so much that makes
to members of our community and to share
FS life exciting and rewarding. their voices.
And there are so many challenges FS
families face, even in the best of times.
These are not the best of times. Blome offers some answers in “Still reprisal for speaking candidly.
In Speaking Out, Kathi Silva shares the Waiting” (that’s a hint), along with some The Journal seeks to spotlight topics of
serious concerns in the FS community suggestions for riding out the period of concern to members of our community
today regarding diminishing support for limited hiring. (Note to FS family members and to share their voices. While we avoid
families with special needs kids. Some seeking work: We pay for articles pub- publishing unattributed articles and let-
fear that the new model at State is simply lished in the FSJ; we have revived the AFSA ters, we are willing to publish comments
to keep families with special needs kids News Family Member Matters column; without attribution as long as our authors
from serving overseas. and we are building our list of FS pho- know who the people they quote are and
Against the backdrop of today’s tographers who can get paid for photos can vouch for them.
#MeToo and #MeTooNatSec movement, we use in the magazine. In fact, three FS Some readers disagreed with our
our cover story by Ambassador (ret.) family member photos are on this month’s decision to publish the critique of U.S.
Leslie Bassett takes on the problem of cover.) assistance, “When Criticism Falls on
sexual harassment at State in “#StateToo: Associate Editor Donna Gorman Deaf Ears: The Case of U.S. Foreign Aid”
Ending Harassment at the State Depart- takes on the difficult topic of “Surviving (November FSJ). But the Journal is a
ment.” Divorce in the Foreign Service,” offering vehicle for discussion and debate on
We asked former FSJ Associate Editor perceptions from those who have been foreign affairs issues and work.
Debra Blome to update us on the State through it along with guidance on where Accordingly, Letters-Plus features
Department hiring freeze as it relates to to find the right resources and support, two thoughtful responses to that article,
family member employment. (Donna while FS Specialist Mikkela Thompson from former USAID FSOs Terry Myers
Gorman’s look at this topic for the July- shares a collection of perspectives on and Raymond Malley. May the dialogue
August issue, “Out in the Cold,” was our what it’s like to be single overseas in continue.
most-read article of 2017, and painted a “Singles Speak.” On the cover, you’ll see the provoca-
rather bleak picture of the job situation In FS Know-How, “Taking Care of Our tive line, “Time for a National Conversa-
for family members overseas.) Own,” AFSA VP for Retirees John Naland tion.” This is the title and central tenet of
The Secretary of State’s Dec. 12 town explains how the Senior Living Founda- the Message from the Hill from Senator
hall offered hope: he said the hiring tion of the American Foreign Service Lindsey Graham (R-S.C.), who con-
freeze on family member employment can help retirees financially when facing tinues to be a strong advocate for U.S.
would be lifted for difficult situations. diplomacy and development and for the
2018. Great news! This was not the easiest edition of Foreign Service.
But what has come the Journal to put together. You will find In President’s Views, Ambassador
through since then? many more anonymous comments than Barbara Stephenson echoes that theme,
Is there reason for usual in the articles. There is a general and lays out the budget case to show that
optimism now? chill in the air at State, as some fear America should be building up its core
diplomatic capability rather than pulling
Shawn Dorman is the editor of The Foreign Service Journal. the team off the field. n
10 MARCH 2018 | THE FOREIGN SERVICE JOURNALLETTERS
Fantastic December Issue require the United States to leverage its Bemused and Unamused
Thanks so much for the fan- other indispensable assets—its demo- In the December issue of The Foreign
tastic December FSJ highlighting cratic values, the rich diversity Service Journal, Ambassador Barbara
diplomacy and how what we do of its people, its open Stephenson and FSJ Editor Shawn Dor-
matters. From the AFSA presi- economy and the rules- man reprise the plaintive duet of “Why,
dent’s column (“Time to Ask based international order oh why, is the State Department treated
Why”) onward, it was comfort- created from the rubble of so badly?” Assuming the question is not
ing to read. World War II. rhetorical, but rather a request for help
Michele Hopper These are the very understanding the actions of a demand-
FS Family Member aspirations that define ing supervisor and an unimpressed
Community Liaison American exceptionalism public, I’ll take that question.
Office–Assistant in the history of nations and The first step is to reread both com-
U.S. Consulate Frankfurt that rally support from people mentaries with fresh eyes and pick out
around the world. To bring the message inside the message, which
Deploy FS Force these strengths fully into play, diplomacy is replete with unvarnished, if possibly
Multipliers must move to the forefront in protecting unintended, elitism. Much like AFSA
With the Foreign Service under national security. offerings in other forums, they both offer
siege, Ambassador Barbara Stephenson Rather than a tool of first resort, Amer- a cartoonish message of brave, well-
and AFSA have been waging a spirited ica’s unmatched military capabilities are trained experts under siege by a coterie
defense. A recent essay from RAND Cor- the critical enabler for skillful diplomacy of slack-jawed bumpkins who couldn’t
poration analyst Michael Mazarr (War on that can solidify alliances, resolve dis- spell, let alone define “national interest.”
the Rocks, Oct. 30) is especially pertinent putes and promote international coop- Which, speaking as one who has relo-
to this debate. It presents a compelling eration on issues of national interest. cated far beyond the Potomac, is tripe.
argument for the primacy of diplomacy Significantly, civilian and military leaders Then we should examine “accom-
in national security. of America’s defense establishment have plishment.” Amb. Stephenson uses a
Unlike the Cold War, when America consistently grasped the role of military military analogy, which is unfortunate
successfully faced off against a single power in service of diplomacy. This raises for her argument: the leaders of any
lethal foe, today America, on its own, the question of how to strengthen public army with the history of failure and
simply cannot afford the blood and consensus around that idea. retreat State has suffered in the past 15
treasure necessary to deter the multiple While diplomats must continue years would have been cashiered long
adversaries we face—Russia, China, vigorously defending their profession, since, to public acclaim. Let’s review
Iran, North Korea and jihadist terrorists, they lack the domestic constituency to four problems in which State Depart-
not to mention coping with global risks gain traction among the wider public. ment “experts” have dabbled recently.
from climate change, pandemics and the Moreover, their arguments will too often Libya, anyone? We violated an agree-
proliferation of weapons of mass destruc- be interpreted as self-serving, rather than ment to depose Muammar Gaddafi,
tion. If America defies this reality, it will rooted in the national interest. with what result? How about failure to
collapse just as surely as the Soviet Union The Foreign Service needs to mobi- enforce the Budapest Memorandum
did. lize its own “force multipliers”—a broad when Vladimir Putin changed national
Military power remains an essential coalition of wise warriors and other boundaries in Europe by force? Perhaps
pillar of national security, but not the like-minded citizens who can make the the Syrian “Red Line” and subsequent
only one. Indeed, overreliance on the most persuasive case for renewing the abandonment of the once-successful
application of military power has led country’s commitment to the primacy of opposition to the tender mercies of
to strategic blunders in the past, from diplomacy in securing the peace. Putin, Assad and their Iranian enforc-
Vietnam to Iraq. Art Kobler ers?
Advancing national interests in the FSO Minister Counselor, retired That’s not the only Iranian problem
multipolar world of the 21st century will Hong Kong of course; but North Korea already has
THE FOREIGN SERVICE JOURNAL | MARCH 2018 11nukes and probably will have a viable but to popular conviction that the State
re-entry vehicle soon. Thirty years and Department deceived on the handling of
more of “expert” diplomacy diverted Benghazi; caved on Iran by lifting sanc-
them not one whit. tions and forking over billions of dollars;
Each of these threatens our national countenanced Clinton corruption and
security. Each represents a failure of the mishandling of classified informa-
foreign policy. Where were the firings? tion; fell in with a policy of “leading
The resignations? When normal from the rear”; carried out expensive
Americans don’t see consequences for but (relative to their returns) pointless
poor performance, they grow resentful; foreign aid programs; and did not, along
impunity irritates them almost as much with the military, do all it could against
as unearned rewards. ISIS in Iraq.
Finally, we know the self-selected Moreover, the public believes the
leaders of our foreign affairs commu- department played fast and loose with
nity don’t like being told nay, nor do the issuance of visas (I read that almost
they appreciate having their assump- half of illegal immigrants arrived in the
tions questioned; indeed, they are the United States with visas in their pock-
products of a system designed to stifle ets). In other words, State is not broadly
this sort of behavior. They also smugly viewed as “putting America first.”
assume that the Great Unwashed In 2016 such perceptions helped
Beyond the Potomac don’t know they’re lead to the election of an administration
viewed as rubes, and wouldn’t care if whose goal was to “drain the swamp.”
they did. That appears to be the reality causing
But speaking as someone who lives the ambassador’s grievances. As she
out where people grow stuff and make herself reminds: “Remember, nine in 10
things, they do, and do. That’s one rea- Americans favor a strong global leader-
son we have the president we have, and ship role for our great country.”
State has the Secretary it does: isolation, Richard Hoover
cozy self-congratulation and satisfac- FSO, retired
tion with minimal accomplishment have Front Royal, Virginia
brought a reckoning.
Deal with it like adults. Or don’t let Certain and Uncertain
the door hit you on the way out. Dangers
Morgan Liddick I was surprised by the opinion
FSO, retired expressed by Ambassador Barbara
Stuarts Draft, Virginia Stephenson in her President’s Views
column in the November issue of The
Why Cut State? Foreign Service Journal; namely, her
In the December FSJ Ambassador opposition to the reduction in staff at
Barbara Stephenson asks why State sud- Embassy Havana in connection with
denly finds itself beset by funding cuts, attacks affecting the health and well-
the “decapitation” of its senior leader- being of our personnel.
ship and a declining Foreign Service Amb. Stephenson states that “AFSA is
intake of recruits. not advocating for the withdrawal of all
The answer, I believe, is tied not only American diplomats from Havana.” Yet I
to demands for reduced deficit spending do not believe shutting our embassy is at
12 MARCH 2018 | THE FOREIGN SERVICE JOURNALissue here. Else- Bullish on Foreign Service
where (in inter- Careers
views with NPR While developments at the U.S.
and BuzzFeed), Department of State and within the
Amb. Stephen- Foreign Service are making headlines
son made nearly every day, none caught my atten-
clear that, tion more than Georgetown University’s
“speaking on Dec. 8 edition of The Hoya, which pro-
behalf of my claimed: “Students Lose Faith in Foreign
colleagues,” Service Careers.”
she opposes the current reductions in The article asserts that dwindling
staffing at Embassy Havana. opportunities at the State Department
While praising the willingness of have prompted some students aspiring to
State Department employees to serve in the Foreign Service to look elsewhere. The
hardship posts, she draws a question- author points to State Department records
able analogy between the uncertain that show a 34 percent decline in the num-
dangers we face in Havana and threats ber of applicants taking the Foreign Service
to health in places where people serve Officer Exam compared to two years ago.
knowing full well the nature of the prob- This drop and the idea that students
lems and having the ability to mitigate are now beginning to view entering the
them. Foreign Service as a risk they do not want
I am unaware of any polling that has to take give me pause.
been done to assess the views of the For- Let me make my bias clear. I believe
eign Service on this matter, but I would strongly in the Foreign Service—not only
argue that, even if Amb. Stephenson’s as a place to embark on a fulfilling career,
views were representative of a majority but also in the inherent value of a career
of our colleagues, prudence would dic- in service to our nation. Prior to joining
tate that the department err on the side the Institute of International Education,
of caution until we better understand I spent nearly 20 years as a professor and
who or what is behind these attacks. dean at the School of Foreign Service at
Does Amb. Stephenson oppose the Georgetown. During my tenure there, it
sharp reductions in staff at our embassy was the top producer of career Foreign
in Kabul or the many other posts where Service officers.
the increased perception of a threat that Given its history and impact on
we are unable to adequately address has the Foreign Service, the mood on the
led to a reduction in numbers? Georgetown campus is important. But it is
And is it really the place of the presi- equally essential to listen to what people
dent of AFSA to be questioning these say when they explore opportunities in the
types of decisions made by the depart- workforce.
ment with the well-being of the employ- IIE received applications from 17,000
ees in mind? job seekers last year, so we know that
Thomas Mittnacht there are many who want to make inter-
FSO, State Department national affairs the focus of their career.
Foreign Policy Adviser I meet with several IIE candidates a
Joint Interagency Task Force South week, as well as others who are exploring
Key West, Florida different career paths. Invariably those I
THE FOREIGN SERVICE JOURNAL | MARCH 2018 13speak with are interested in international that—service—and also offers graduates
service, and many come well-equipped the opportunity to represent American
with several foreign languages. values at a crucial time in world history,
Most of them strike me as the kind of where their skills and their insight have
people who would thrive at a U.S. embassy a potential to make a real difference. So
abroad. I nearly always ask if they have I am impressed with the students and
considered taking the Foreign Service recent graduates I meet who say, “You
Share your exam. Most say they had considered it, but know, maybe I will take that exam.”
never registered. So I encourage them to The future leaders I meet are just the
thoughts about apply to take it. sort of people who would do well in a
this month’s issue. We find ourselves in a period when Foreign Service career. They give me
the press isn’t good, and the career seems hope for the future of the Foreign Ser-
less appealing. This is unfortunate, since vice at a time when, more than ever, we
Submit letters the Foreign Service would appear to be need our best and brightest to pursue
to the editor: ideally suited to the interests of the current careers in public service.
generation. The newest college-educated, Allan E. Goodman
journal@afsa.org career-ready graduates are searching for President and CEO, Institute of
real meaning in their life’s work. International Education
The Foreign Service is about just Washington, D.C. n
14 MARCH 2018 | THE FOREIGN SERVICE JOURNALLETTERS-PLUS
“When Criticism Falls on Deaf Ears:
The Case of U.S. Foreign Aid”—Responses
Good Points Nearly Lost military sales, grants for village water
supply and loans for farmers to food aid,
Among Generalities humanitarian assistance and disaster
relief, investment credit and infrastruc-
ture grants.
BY DESAIX “TERRY” MYERS
Or it can refer to the implementing
agencies—the Peace Corps, USAID, the
Tom Dichter’s article in the November Millennium Challenge Corporation, the
2017 Foreign Service Journal provides a departments of State and Defense, the
usefully provocative summary of years of World Bank and United Nations agen-
criticism of foreign aid. It saves newcom- cies—or their partners, including non-
ers to the subject from reading decades governmental organizations like CARE
of critiques; and for those of us with a and Save the Children or development
lifetime in development work, it offers an consulting firms.
exercise in nostalgia—there is very little Without a definition of the types of
bad that anyone can say about foreign assistance, the agencies and instru-
aid and its implementers which we ments for their delivery and, perhaps
haven’t thought ourselves at one point most importantly, without describing
or another. The article suffers, however, the objectives sought, statements about
from a number of shortcomings: development, and from democracy and success or failure of foreign aid lack
It begins with a false premise—that open markets to stabilization and income grounding.
criticism of foreign assistance has fallen inequality. Foreign aid has multiple objectives.
on deaf ears. In fact, development agen- But rather than failure, these changes It can be used for national security,
cies like USAID and the World Bank have more accurately reflect political real- as it was throughout the Cold War, or
wrestled with relentless criticism since ity—changes in public, presidential and for political objectives, as it is today in
their founding. And because the criti- congressional interests and understand- countering violent extremism. It can
cism often has come from those with the ing; evolving knowledge; and changing promote economic growth, commerce,
power of the purse—the public and Con- circumstances. They demonstrate the trade and investment; help refugees; sup-
gress—their programs have undergone acute sensitivity of development practi- port recovery after disasters; or encour-
constant reinvention. tioners to criticism and their remarkable age cooperation on cross-border issues,
Dichter recognizes this himself in flexibility in absorbing the whiplash of transnational crime, infectious disease
faulting what he describes as “the rise political winds in charting a long-term and environmental protection.
and fall of the next new big idea, fad strategy. Until you’ve laid out the wide range of
or buzzword.” He implies that shifts in objectives assigned foreign aid over the
foreign aid’s approaches or emphasis Defining the Issue years by politicians, policymakers and
signal the inability of foreign aid workers The article’s overriding weakness is the public, it doesn’t make sense to talk
to get development right. He is right that its failure to actually define what it’s talk- about its success or failure.
themes have indeed moved frequently— ing about. What does the author really The article’s discussion of the nature
from national security to basic human mean by “foreign assistance”? The term of the business of foreign assistance also
needs, new directions to private sector can encompass everything from foreign misses the mark. The growth of profes-
THE FOREIGN SERVICE JOURNAL | MARCH 2018 15sional firms and NGOs capable of provid-
ing specialized expertise in areas from
while officials in the Department of State
and Defense, not to mention Congress, Foreign
health to agriculture, tax policy, demo-
cratic elections and financial intermedia-
are pressed for time and more interested
in quick results. Assistance
tion has been noteworthy in the last 50
years, and this is more to be praised than Debate Needed Realities
condemned. The article raises a number of good
B Y R AY M O N D M A L L E Y
Delivering foreign assistance—which points—the rise of development firms
is often just sharing knowledge through and large NGOs, the need for account-
technical advice, training, exchanges ability, the extent to which programs are The broadside criticisms of foreign eco-
and long-term education—is not to be built around indicators rather than need nomic assistance in the article (“When
compared with manufacturing cars, as (a flip side of the accountability issue), Criticism Falls on Deaf Ears”) by Thomas
the article would have us believe. Refer- the importance of a long-term commit- Dichter in the November Journal beg for
ring to “pulling names from consultant ment and local ownership. reactions. Here are some.
databases,” Dichter implies that there is But the good points are nearly lost Foreign economic assistance in the
something wrong with building teams of among a welter of generalities and broadest sense is a tool of diplomacy. It
qualified individuals capable of sharing propositions put forward as if there were is soft power. It assists in the negotiation,
world-class information on Ebola, irriga- evidence to support them. The result is a containment and solution of problems.
tion, new seed varieties, mobile banking set of jerry-rigged recommendations of Major examples of success are
or a modern judicial system. little use in constructing a foreign assis- legion. The Marshall Plan helped rebuild
tance strategy for the future. Western Europe and ward off commu-
Too Many Straw Men Far better would be a call for debate nism. Assistance to numerous coun-
The article sets up too many straw over the objectives of foreign aid, the tries supported the containment policy
men—the hubris, the short-term think- tools at hand and agencies to reach those and victory in the Cold War. It is a key
ing, the over-focus on “saving lives and objectives: what we should be doing and component of the Camp David accords,
extreme poverty”—for which it offers too how we might better do it. But that would which have kept peace between Egypt
little evidence. There’s plenty of hubris; be a different article. and Israel. It helped former Soviet Bloc
but some would argue that the crises are countries become market economies and
so complex and development is so com- Terry Myers, a retired Foreign Service officer, democracies. China today uses economic
plicated that without hubris, we wouldn’t began his USAID career with an assignment assistance to advance its Silk Road com-
have the gall to attack the problems to Bangladesh (then East Pakistan) in 1969. plex. And the European Union uses it to
involved. He went on to serve in Washington, D.C., ease refugee problems.
A.O. Hirschman described the phe- Senegal, India and Burma, and as mission Such assistance also has commercial
nomenon of the “hidden hand” years director in Indonesia (1998-2003) and Rus- objectives. France uses it to spread cul-
ago. If we knew how hard a project was sia (2003-2007). He moved to the National ture and support trade and investment.
going to be ahead of time, we wouldn’t Defense University in 2007, as USAID The Danes have used it to spread their
have the courage to undertake it. But Chair at the Industrial College of the dairy expertise, the Finns to promote their
there’s plenty of humility, as well. No Armed Forces, and retired from USAID forestry industry, and the Japanese to
one experienced in wrestling with devel- in 2010 to join the National War College, support heavy industry and construction
opment’s challenges can escape it. where he was professor of national security projects abroad. We Americans export
And those in the development busi- studies until 2016. He is the author of three massive amounts of agricultural products
ness know well just how long it can take books and numerous articles and chapters; as part of our assistance programs.
to get change. Development people are the most recent, “USAID: More Operator I know of no experienced person who
usually the ones arguing for more time than Policy Maker,” appeared in claims that economic assistance alone can
and longer-term projects and programs The National Security Enterprise develop a country. But it can help coun-
in order to reach a point of sustainability, (Georgetown University Press, 2017). tries that are determined to improve and
16 MARCH 2018 | THE FOREIGN SERVICE JOURNALput domestic muscle behind the effort. countries that remain poor. For example, than to ill-designed or ill-managed assis-
Not long ago I mentioned to old onchocerciasis (river blindness) has been tance projects and programs. My team
Korean colleagues that some Americans substantially eliminated in several poor created and carried out perfectly sound
claim that economic assistance does African countries through joint efforts activities in Congo/Kinshasa, which were
not “work.” They were incredulous and with foreign donors. subsequently ruined during civil wars.
amused. Massive help from us and others Throughout the developing world dis- Due to failed policies our country
was key to their country quickly becom- eases have been reduced and pandemics wasted vast sums in Vietnam, and we are
ing the economic power and vibrant avoided, potable water systems built, chil- continuing to do the same today in Iraq
democracy that it is today. dren inoculated, women helped, literacy and Afghanistan. Blame the failed poli-
increased, infrastructure improved, small cies, not the aid.
Undeniable Benefits businesses stimulated, financial markets
Other countries that have benefited improved, electricity provided and climate Raymond Malley is a retired Senior FSO
include Taiwan, Malaysia, the Philippines, warming addressed. Hundreds of millions who served with the State Department and
Bangladesh, Botswana, Ghana, Tunisia, of people have benefited. USAID. A life member of AFSA, he is also a
Morocco, Cabo Verde, Chile, Panama, Of course, there have been and retired U.S. Air Force Reservist and a retired
Costa Rica, Portugal, Greece, Turkey, those continue to be economic assistance member of the Halla Business Group, Korea.
spawned from the former Yugoslavia and disappointments and failures, just as in He has published three books and teaches
many former members of the Soviet Bloc. other complex human undertakings. In in the Dartmouth College Osher Extended
Further, in assessing economic assis- my experience, most of these are due to Learning Department. He currently resides
tance one must consider results even in faulty and failed foreign policies rather in Hanover, N.H., and McLean, Va. n
THE FOREIGN SERVICE JOURNAL | MARCH 2018 17A MESSAGE FROM THE HILL
Time for a National Conversation
B Y S E N AT O R L I N D S E Y G R A H A M
T
he world’s problems have personnel are on the government and partners, but also for the effect on
only grown more numerous payroll, compared to just over 15,000 America’s standing in the world. As
and complex over the past Foreign Service members. most any informed military officer will
decades. Pick any region, tell you, defense spending alone does
and you stumble across conflicts and The Role of Diplomacy not provide for America’s security.
war (old and new), humanitarian and Development While the new National Security
crises and the increasingly rapid rise The message sent to the Depart- Strategy provides much-needed detail
of regional powers—notably Russia ment of State, the United States Agency on our global priorities, it leaves
and China—and non-state actors that for International Development and unanswered the grand question of what
erode the stability and predictability of Congress in the $40.5 billion Fiscal America’s role in the world today should
the post-World War II international be. Are we the
system shaped largely by the Ameri- same post-World
can victors. War II power that
In the span of almost 75 years, the crafted an interna-
global scene has gone from bipolar tional system that
to unipolar (following the fall of the provided secu-
Soviet Union) to what can be best rity, stability and
described today as an unstable, unpre- predictability for
dictable multipolar world. decades, or are
Through all of these dramatic we a mere sup-
changes, our diplomats and develop- porting actor on
ment specialists have been on the front the world stage,
lines, all too often in the crosshairs of content to react
the enemy. The knowledge and experi- to events and cri-
ence of these dedicated public servants ses rather than
are unparalleled. shape or resolve
They possess a skill set that can- them? Should
not and should not be replicated or we remain the
replaced by other United States govern- Year 2018 request for the international world’s sole superpower?
ment agencies, including the Depart- affairs budget regrettably raised more This is worth a national conversa-
ment of Defense. It should not be lost questions than answers on the role of tion. If a diminished role is preferred,
on the American people that approxi- diplomacy and development. the American people must be fore-
mately 1.3 million active duty military The response by Congress to the warned that weakened U.S. influence
request (and proposed 30 percent and soft power will most certainly trans-
Senator Lindsey Graham (R-S.C.) is chair- cut from the previous fiscal year) was late into heightened global and regional
man of the State, Foreign Operations and one of genuine concern, not only for insecurity and uncertainty as America’s
Related Programs Subcommittee of the its potential impact on operations, standing is repeatedly challenged by
Senate Appropriations Committee. personnel and assistance for key allies international competitors.
18 MARCH 2018 | THE FOREIGN SERVICE JOURNALThe Point of from being filled, a strong military
Organizational Reform If a diminished response will be insufficient. Then-
Secretary of State Rex Tillerson role is preferred, Commander of the U.S. Central Com-
and USAID Administrator Mark Green
deserve recognition and support for lis-
the American mand General James Mattis said it best:
“If you don’t fund the State Department
tening to the suggestions and concerns people must be fully, then I need to buy more ammuni-
of those they lead in order to more forewarned ... tion.”
effectively adapt and “redesign” their Finally, now is not the time to retreat
respective agencies to this changing from anticipated returns on invest-
global environment. They must work ment from successful foreign assis-
together on this much needed modern- with deep experience at Foggy Bottom, tance programs such as the President’s
izing effort. The Senate Appropriations ensuring a steady inflow of entry-level Emergency Plan for AIDS Relief and
Committee welcomes an empowered diplomats and aid workers is also the Millennium Challenge Corpora-
and relevant Department of State and important. Let’s not forget that today’s tion. In many countries, we have made
USAID that takes into consideration the second lieutenants are tomorrow’s measurable and impressive progress
views of its career staff. majors and colonels. Equally important with respective foreign governments in
However, the ultimate success of any is an unequivocal commitment by the combating diseases through PEPFAR
effort to achieve greater efficiency and president and Congress to the security and furthering good governance and
effectiveness comes from buy-in for and welfare of our personnel posted the rule of law through the MCC.
proposed reforms by both diplomats abroad and on the frontlines. In addition, America has been the
and the Congress. This is an ongoing I have made clear to Secretary Tiller- undisputed leader as a humanitarian
process in its early stages; but in the son that I support his efforts to reform and pandemic first responder, whether
meantime, these agency heads owe it and modernize the Department of State. in the Middle East, West Africa or Asia.
to their employees to provide clear and However, reform for reform’s sake is not It should not be lost on the American
coherent direction, adequate resources the point. The Secretary must clarify his people that no one other country has
and appropriate decision-making vision of the State Department’s role the capabilities—or values—to project
authority to further America’s national and operations in our national security power, influence and assistance like
interests abroad. architecture once it is reformed. The America can.
There are many lessons learned unknown factor is how soft power and The United States must be prepared
from past organizational reform efforts, diplomacy fit into a stronger military for future challenges and opportuni-
including that the 1990s cuts and hiring and a more aggressive fight against radi- ties in terms of both leadership and
freezes may have saved money in the cal Islam. resources. As readers of The Foreign
short term, but led to increased person- Service Journal know best, if we are
nel costs down the line. We paid this Prepared for Challenges flat-footed, Moscow and Beijing will be
price with the diplomatic and develop- and Opportunities ready and willing to fill the leadership
ment surges for Afghanistan and Iraq Without a clearly defined strategy of vacuum. America needs our diplomats
following the Sept. 11, 2001, attacks. ending conflict through diplomacy and and development specialists on the
As important as it is to retain those having a presence to prevent vacuums front lines today more than ever. n
THE FOREIGN SERVICE JOURNAL | MARCH 2018 19TALKING POINTS
The Trump Doctrine and But, he added, echoing many others, Just a month prior, on Dec. 27, another
the Mattis Manifesto “much of it is at odds with what the presi- distinguished high-level State official
P resident Donald Trump released his
first “National Security Strategy” on
Dec. 18, 2017. Breaking with tradition,
dent himself believes.”
When it comes to the administration’s
foreign policy, Colin Dueck argued in a
announced his resignation: John Fee-
ley, then serving as U.S. ambassador to
Panama. Amb. Feeley, a Latin America
he unveiled the document himself with a Jan. 9 review of the NSS in The National specialist, joined the Foreign Service in
national address, hailing it as the “America Interest, a focus on “the signal, not the 1990 after serving in the Marine Corps as a
First” foreign policy he had promised to noise” is advisable. helicopter pilot.
deliver. National security professional and His resignation letter, widely quoted in
In the letter prefacing the document, former U.S. ambassador to NATO Rob- the press, stated: “I signed an oath to serve
President Trump asserts that the United ert Hunter described the NSS as “not faithfully the president and his admin-
States “faces an extraordinarily dangerous operational.” It contains neither decisions istration in an apolitical fashion. … My
world, filled with a wide range of threats about foreign policy nor the budgetary instructors made it clear that if I believed I
that have intensified in recent years.” The appropriations to implement them, he could not do that, I would be honor bound
document emphasizes the importance of noted. to resign. That time has come.”
economic strength, secure borders and a Similarly dismissing the document’s Of Amb. Feeley’s resignation, Under
strong military in meeting these threats. practical significance, the CFR’s Rebecca Secretary of State for Public Diplomacy
Significantly, the NSS also under- Lissner argued for a new approach to the and Public Affairs Steve Goldstein said:
lines the vital importance of a vigorous NSS “so that it fulfills its intended pur- “Everyone has a line that they will not
diplomatic capability. At the same time, pose—instead of simply camouflaging a cross. If the ambassador feels that he
the NSS dismisses climate change and perennially ad hoc foreign policy.” can no longer serve…then he has made
demotes human rights and democracy Speaking at Johns Hopkins Univer- the right decision for himself, and we
promotion as national security concerns. sity’s Paul H. Nitze School of Advanced respect that.”
Produced by White House National International Studies a month after the Other high-level officials were in the
Security Adviser H.R. McMaster and his NSS debuted, Defense Secretary Jim Mat- news as well. On Jan. 9, Reuters reported
team, the document drew a vigorous tis offered insight into the strategy. that Lawrence Bartlett, who was the head
response ranging from praise to denun- Announcing the completion of a new of refugee admissions in the State Depart-
ciation and dismissal. National Defense Strategy and warning ment’s Bureau of Population, Refugees and
In an interesting exercise, the Brook- “those who would threaten America’s Migration, was reassigned to the office that
ings Institution’s Tarun Chhabra mapped experiment in democracy,” Mattis stated: handles requests under the Freedom of
the reactions of U.S. analysts, plotting “Work with our diplomats. You don’t Information Act (the FOIA office).
assessments of the NSS overall against want to fight the Department of Defense.” As The Hill reported on Jan. 9, some fear
appraisals of the president’s impact on that the reassignment is part of a broader
U.S. foreign policy, and drawing some More Senior Officials effort to halt efforts to resettle refugees
preliminary observations from the result. Leave Their Posts within the United States. Others believe it
Elsewhere, Brookings experts offered a
line-by-line annotation, and the Carnegie
Endowment for International Peace took
T he most senior FSO in the State
Department, Career Ambassador
Thomas Shannon, serving as under secre-
is part of an effort to “exile” or push out FS
members who served under the Obama
administration.
a close look at what the NSS means for tary of State for political affairs, announced On Jan. 27, both The Hill and CNN
democracy promotion. his retirement on Feb. 1 in a letter to reported on a letter sent to the State
In an expert brief for the Council on colleagues. Amb. Shannon has been seen Department Office of the Inspector
Foreign Relations, Max Boot called the as a bridge between the career Foreign General by Representatives Eliot Engel
new NSS “an eloquent summation of the Service and the Secretary of State, so his (D-N.Y.) and Elijah Cummings (D-Md.)
United States’ role in the world and a announcement heightens current anxiet- stating that “our staffs have been made
principled exposition of what should be ies about the depletion of the leadership aware of credible allegations that the State
done to defend it.” ranks. Department has required high-level career
20 MARCH 2018 | THE FOREIGN SERVICE JOURNALYou can also read
