Lessons from a Diplomatic Life (reprise)

Marshall P. Adair, the author of the book under review here (Lessons from a Diplomatic Life, Lanham, MD: Rowman, Littlefield, 2013) is the scion of one of those splendid Mandarin families—the progeny of John and John Quincy Adams—who have played such a prominent part in the history of the U.S. foreign service. The son of a former U.S. Ambassador (Charles Wallace Adair) and grandson of a gentleman who participated in the drafting of the peace treaty that ended World War I (Hugh Dow Marshall), Marshall P. Adair retired as a Minister-Counselor in the Senior Foreign Service in 2007. Those of us in the Glenn School got to know him at an event that we co-sponsored with the Woodrow Wilson International Center for Scholars.

Like most seasoned foreign service officers, Mr. Adair has interesting stories based on a string of exotic postings abroad (in chronological order: Paris, Lubumbashi, Taipei, Hong Kong, Beijing, Rangoon, Chengdu, and Tuzla). And he has worked with a few of the world’s most charismatic and colorful characters, including Aung San Suu Kyi, whom he befriended during his tour in Burma, and uber-diplomat Richard Holbrooke, with whom he worked in Bosnia. Of the lessons he learned in the foreign service, some are fairly mundane: for example, that there always will be tension between the experts (i.e., professional diplomats) and the amateurs (i.e., political appointees). Others are a little more nuanced (for example, that an embassy staffer cannot afford to be completely dependent on his or her official hosts, or the U.S. will have no credibility among opposition elements). Mr. Adair was reminded repeatedly that in recent decades the role of the Department of State in making U.S. foreign policy has been significantly diminished by the Almighty Department of Defense, which has perfected the art of ingesting the massive military-industrial budget, converting it to pork, then channeling it back to carefully selected Congressional districts.

In Lessons from a Diplomatic Life, Mr. Adair demonstrates the many advantages that foreign policy professionals have over the rest of us by virtue of their having a historical context in which to fit contemporary events. Consider the case of Tibet. Adair clearly is drawn to Buddhism, and so he admittedly is fascinated by “exotic and mysterious” Tibet; that is why he welcomed (as “a dream come true”) his posting to Chengdu, which is relatively close by in China. Thanks to that proximity, and a close study of the history of the region, his perspective on Tibet-China relations changed substantially during his time there. He discovered, somewhat to his surprise and chagrin, that there is some truth in China’s claim that prior to its intervention in the 1950s, Tibet, far from being the Shangri-La of romantic myth, was in many ways a feudal theocracy heavily dependent upon slave labor. He learned that Tibet, contrary to myth, was for many hundreds of years not a separate state but rather an integral “part of the Chinese empire.” He came to understand that China has good reason to regard Tibet as a potential threat. Finally, he learned to appreciate a painful irony: compared with the treatment of native Americans in the Western Hemisphere, China’s relationship with Tibetans and Tibetan culture could be considered “a model of respect and restraint.”

The nine chapters (plus preface and coda) of Lessons from a Diplomatic Life are free-standing in many ways, but there are a few themes that run throughout the book. One, already alluded to, is the pathetic status—in terms of budgetary and political clout—of the Department of State compared with the Department of Defense. Another, related to the first insofar as it is a function of draconian budget cuts, is the status of foreign language training in the U.S. foreign service. Americans in general are not good at foreign language acquisition, in part because we haven't had to be multilingual. But wholly inadequate resources exacerbate the problem for our foreign service. Take the case of Zaire: “Because most of us did not speak the indigenous languages or Kiswahili,” Adair writes of the embassy staff, “we were not able to communicate with about 80 percent of the population except in the most rudimentary fashion. Communicating with a country’s elite is insufficient.”

I’ll say. The problem is particularly acute in countries that have indigenous languages beyond the official national languages that are usually a vestige of colonialism. We have a very unimpressive record of training FSOs in indigenous languages, and our performance, according to Adair, is getting worse, not better. “Inadequate financial resources limit the number of teachers and classroom space. A shortage of Foreign Service positions makes it impossible to assign existing Foreign Service officers to more extensive language training.” It’s not a pretty picture.

Mr. Adair has written a most thoughtful account of his career as a third-generation diplomat, one that offers real insight into the changing status of spouses and children accompanying foreign service officers in the field. His anecdotes are informed by his own youthful experience as an embassy brat in Uruguay, Panama, and elsewhere. I was moved by his sensitive treatment of the often uncomfortable role that his wife, Ginger—a Taiwanese-American—was called upon to play during various tours of duty, particularly in Hong Kong, Beijing, and Chengdu. Adair introduces us to his son, Charles, and ruminates about the agonies and ecstasies of living abroad (and changing schools!) as a teenager.

Mr. Adair does an excellent job of demonstrating how the personnel policies of the U.S. Department of State often impacted his career. Rotational assignments, for example, require junior officers to float through the different parts of a U.S. embassy, where they will learn about cultural, political, economic, and consular affairs, in sequence, thereby becoming acquainted with the many dimensions of diplomatic work; he seems to think rotational assignments are a good thing, and I am inclined to agree. Hiring decisions, training opportunities, short-term details, performance evaluation, and the system of bidding on jobs are among the standard operating procedures (SOPs) that Human Relations administers, and that shape a working environment that any federal employee will recognize as profoundly bureaucratic—again, it’s a mixed bag.

Most impressively, Mr. Adair owns up to his own errors, whether of commission or omission. For example, he relates the story of a senior Defense Department official who asks him in Bosnia about lessons learned that could perhaps be applied to Iraq in the aftermath of a war waged in the name of regime change. Based on his experience working with war criminals in Bosnia, Mr. Adair took the opportunity to argue in favor of “cleaning house”; after 2003, he wonders how much that conversation contributed to the forging of a campaign to purge the Iraqi government and military of Baathist party members, a policy that was “probably a huge mistake.” Readers who take public service seriously will sympathize with the author and value his unusually candid reflections on his diplomatic career.