Karl Gruber, Austrian Foreign
Minister and Austrian Ambassador to the United States, Spain,
Switzerland, and West Germany Having been both foreign minister
and ambassador, I have seen the problem of ambassadorial
appointments from the side of both those who make the appointments
and those who receive them. I have been in a position to judge when
and how ambassadors fall flat on their face, and why some
distinguish themselves. I believe there is one common denominator
for the performance of superior ambassadors, and that is skill in
communication. It is communication of a very special kind, which
must be learned, but without the basic aptitude for communication an
ambassador cannot be successful in his manifold tasks. Contrary to
the traditional image of an ambassador as a highly polished
individual who is so circumspect in what he says that it requires a
special talent (allegedly found only in other diplomats) to figure
out what he is communicating, I have found that plain speaking is an
essential ingredient for a diplomat's success. He must of course be
tactful and sometimes artful in the way he communicates, but the
message must come through clearly and precisely. Articulateness in
explaining, reporting, defending, and discussing information on his
country's position and other matters is, to my mind, essential.
The finest among American ambassadors with whom I have had
dealings were Robert Murphy, Charles E. Bohlen, G. Frederick
Reinhardt, and Llewellyn E. Thompson. They all had a thorough
knowledge of international affairs, they were cosmopolitan and had
empathy for the concerns of other countries, and they were not too
cautious in the way they explained what was going on and what their
country was trying to accomplish. The worst among American diplomats
whom I have met - and I would rather not give their names - were
those who were exceedingly cautious (not merely circumspect) and who
wanted to elicit information without giving anything in return.
For communication among diplomats is a two-way street: one cannot
expect to obtain much information unless one is able and willing to
convey information. The ambassador with whom everyone wants to talk
is the one who is interesting to talk with. This was especially
true, I think, of the men whom the United States sent out to foreign
countries in the earliest days of the republic, when they were
statesmen who had been among the decision makers in their own
capital and "men of the world" who moved easily among the decision
makers of other countries.
It will be seen from the above that I am not necessarily critical
of the custom of the United States to choose some people for
ambassadorial positions who are not professional diplomats - but I
believe such persons must have unusual stature in order to be
successful, they must be well-read, well-spoken, they must have a
thorough knowledge of international affairs, and they must be
persons of cosmopolitan tastes and attitudes. Provincialism,
ethnocentricity, inability to understand nuances in foreign
countries, and the belief that one's own country is the best in
everything-these are handicaps which, after a certain age, no amount
of training or experience can overcome.
In my own country, which has a relatively small foreign service
with only a limited intake of new officers every year, almost every
diplomat can expect to become an ambassador. This has its advantages
and disadvantages. Among the advantages is that our diplomats need
not be afraid that their career will be in ruins if they make a
mistake, and that they can consequently be innovative. Among the
disadvantages is that there is too little selection of the best
people and a consequent tendency on the part of some of our
ambassadors to become bureaucratic. Yet excessive competitiveness
can also be a liability, as I have seen in the case of diplomats who
came from an environment where they had to claw their way to the
top: they became competitive also with their peers, both within
their service and with their diplomatic colleagues of other
countries. Diplomacy requires effective habits of cooperation.
The best ambassadors I have known have been people who, in
addition to a thorough knowledge of their own country and the
country of their assignment, also have a well-rounded view of the
world (Weltbild) into which what was happening could be fitted.
Without such a world picture it is virtually impossible to reach a
firm conclusion about the significance of developments. Nowadays
politics permeates every field of state activity. Any small war
anywhere has the potential of leading to a world conflagration. The
growing closeness and interdependence of nations and the interaction
of their public opinions have had the result that the acid of
ideological indoctrination seeps into every cleft of international
and internal differences. No wonder that any cool assessment of the
moving forces of our times requires increased knowledge, sound
judgment, and the ability to attach the proper importance to what is
happening in a large variety of fields. A good ambassador must
understand the significance also of things that happen outside the
area where he is accredited.
Communication, as I have used the term above, includes not only
collecting and conveying information to and from one's government;
it also means negotiating both in the sense of developing concrete
agreements and in the sense of adjusting differences and lining up
support outside of concrete agreements. While skillful reporting
makes the reputation of the ambassador, negotiating is the real
essence of his activity. Negotiating is not just sitting at a table
where two or more countries more or less oppose one another. It
begins a long time before a date is set for sitting down at the
table. The process of softening up the other side is almost as
important as the exchange of more or less brilliant arguments at the
negotiating table.
The ambassador must convince the other government of the
importance of the subject under negotiation, and of a compromise
useful to his own country. But he must also convince his own
government of the limits within which a compromise can be found (or
even whether a compromise is necessary). People at home are often
inclined to consider the limits recommended by an ambassador as due
to excessive caution on his part, alienation from his own country,
or plain muddleheadedness. The worst thing would be to recommend or
predict an outcome of the negotiations which turns out to be too
pessimistic, for instance if the foreign ministry then sends out
someone "stronger" who finds that he could "easily" obtain more than
the ambassador had thought possible. To find the right course
between these conflicting assessments needs skill, experience,
courage, and a cool head. The least desirable outcome from the
effort to steer between the Scylla of failure and the Charybdis of
overcautiousness would be to send meaningless communications to the
home office "in order to protect oneself." One may protect himself
or herself for the immediate moment but may damage his further
career in the process.
A good diplomat must be precise. Experience teaches us that the
higher the summit the flimsier the agreements. Top-level politicians
are much too impatient to watch details, important as they may be,
and are always in a hurry to shake hands to mark a "rapprochement"
or other agreement. As an American diplomat once said to me: On an
icy summit there grows only what you have carried up there. So it is
wise to send conscientious, publicity-shy individuals ahead to
prepare the texts and give the top officials concise information
about the points to be especially watched. For instance, the word
"support" can mean anything from a timely smile to substantial
military support. Specificity is therefore most important. Naturally
there are exceptions when agreement for the sake of agreement, even
at the cost of vagueness, is desirable or necessary - but such cases
are very rare.
A good diplomat also needs a sense of humor. He should always
have some remarks ready to ease tension once negotiations get near a
breaking point. One example that comes to mind involves a
negotiation in which everything went wrong. (It happened to involve
agrarian exchanges in Central Europe, a subject that is always tough
and intractable). One of the negotiators had a long beard, and his
stolid demeanor did not augur well for a successful outcome. His
counterpart finally said: Before we part, I have one more question.
When you go to sleep at night, do you tuck your beard under the
covers or do you leave it above them? There was laughter all around,
and for the first time the patriarch allowed a smile to crease his
lips. Eventually an agreement was concluded, actually a lot sooner
than had been expected. I do not mean to imply that the jocular
question was the reason for the successful outcome of the
negotiation, but I believe the incident illustrates the importance
of the ability to loosen up the atmosphere, of knowing when some
levity will help smooth the way to easier discourse and thus to
agreement.
A word about discretion. An ambassadorial position should never
be given to anyone who is hungry for publicity. In my opinion it is
best, even in official reports, to use personal quotations only when
absolutely necessary, unless the information conveyed is meaningful
only when attributed to a certain high-ranking functionary who
conveyed it with attribution in his mind. If ever a "friend" or mere
acquaintance reads his name in a report of another government, even
if everything in that report is favorable to him, he is much less
likely to be candid and open at the next encounter. Any experienced
diplomat knows that written reports nowadays can find their way to
offices for which they were never intended. To give contacts
confidence that their remarks will be held in confidence, I usually
preferred to talk with them in informal surroundings rather than in
their offices. I also found it prudent even to protect my
handwritten notes.
Finally, like anyone who wishes to be successful in a competitive
environment, an ambassador must have good judgment. This goes almost
without saying, but good judgment today doesn't mean what good
judgment meant at the time of sailing ships and horse-drawn
carriages. When important things are happening, the ambassador's
interpretation of them must be prompt if it is going to do any good
because the press will be doing its own interpreting and so will
other governments. Therefore reporting and analysis must sometimes
be not only timely but almost instantaneous. Good judgment today
must come faster than it did a generation ago. And if an ambassador
has in his mind a concept of the interrelationship between events
around the world, he is more likely to be listened to and his
judgments will carry greater weight. This applies both to his
written communications to his capital and his oral exchanges with
officials of the country to which he is accredited. |