Lord MacLehose of Beoch, British
Ambassador to Vietnam and Denmark, and British Governor and
Commander-in-Chief at Hong Kong
"Don't let it occur again." This concluded my first contretemps
with a British ambassador, on the morning after my first dinner in
his residence in my capacity as his newest first secretary.
"Continentals don't like being nudged towards the lavatory after
dinner; it is a purely English custom; why didn't you know?" Clearly
my upbringing had been neglected, but I tried to fight back. "But
Sir, what about me?" "Well you mustn't and that's all there is to
it." The reaction carried me continent through thirty years of
diplomatic dinners. He was an excellent ambassador and did not
confine himself to such trivia, but the anecdote illustrates one
side of an ambassador's life: whether his embassy is large or small,
he is the head of a family consisting of his staff, and he and its
senior members must train, drill, direct, rebuke and encourage them
so as to make the embassy a smooth-running machine that can be
relied on to handle efficiently any situation, however important or
however trivial. Consequently a good ambassador must have
personality and be a leader, be someone whom it is natural for his
staff to look up to, and someone also for whom looking down at his
staff in friendship and in collaboration is natural.
In this essay describing some of the key qualities I have seen in
successful ambassadors, the list is necessarily short. I have taken
for granted the essential minima expected of someone who must work
in close contact with national political and commercial leaders and
national media, such as experience, grasp of affairs, and facility
in the spoken and written word.
The best embassy I served in was in Paris under an ambassador who
was a towering personality and natural leader as well as a master of
diplomacy. Those of us in charge of sections met him at 9:30 a.m.
every morning. We discussed the morning papers, and he told us
anything of interest said to him the previous day. On any matter
within our province we were expected to give an immediate
explanation of what it was all about, or say whom we knew who could
tell us, or whom we knew who would not tell us but might tell him,
the ambassador. Not to have the facts by 9:30 was bad; but not to
have the contacts that would have them was a cardinal sin. Some
ambassadors or their wives treat invitations to their staff like
Royal Commands, and prior engagements have to go by the board.
However, in that embassy a prior engagement to someone of the
country was always an acceptable excuse. The ambassador knew that
without those contacts his embassy could not function.
This brings out another aspect of a good ambassador. He must make
his staff feel part of a team in which each knows what is expected
of him; and to get the best out of the team, he must not only lead
it but be part of it himself and not above and remote from it. There
is great satisfaction in being part of such a team, knowing that is
is equipped to deal with anything that comes.
Apropos of an embassy team having to be ready to cover all issues
of interest and to be clear about who covers what, when I was
ambassador to Denmark the British press made a great to-do about the
prevalence of sex shops and the degeneracy of youth. Visitors
invariably asked about it. "Is something rotten in the State of
Denmark?" the bigger bores would enquire. The whole thing struck me
as ridiculous, but to keep the visitors at bay I suggested to a
young second secretary that the subject should be his. Subsequently,
an earnest and humorless mission from the U.K. came to observe this
allegedly permissive society, which they were either for or against
- I forget which. But at their final press conference they
complimented the young second secretary by name on his help and
expert knowledge. He took years to live down this kiss of death.
Of course it is ruinous to the work of the team and the
effectiveness of the embassy if the ambassador cannot use its
products. He is equipped with entree to the highest political,
commercial and intellectual circles, with a house and servants and
allowances to ensure he has easy relations with all who can
influence his country's interests; so his staff have the right to
expect he will use this paraphernalia, as well as his greater
experience, to give point and substance to their work and to discuss
with them how this should be done. He must be prepared to go out
front and do and say what is necessary whether to minister, tycoon
or editor, and indeed to relish it. He must be robust. Diffidence
never got an ambassador anywhere.
And as he must be robust with the leaders of the country to which
he is accredited, so also must he be with leaders of his own
country. Ultimately it is his Minister who is master, but the
ambassador has and must use to the full, his duty to warn, argue and
protest in the light of his local knowledge, as well as to inform,
advise and ultimately to act on instructions, But there is no more
unpleasant task for an ambassador than to argue on his country's
behalf a policy which he believes is unfair or misguided, and
nothing is so destructive to an embassy's morale.
So in addition to officials in his Foreign Ministry, an
ambassador must get to know the Ministers and the Members of
Parliament and businessmen and journalists of his own country who
are interested in the country to which he is accredited. To the
leaders of that country he carries Letters of Credence asking that
he be believed, but it is often just as important to his country's
interests that he be believed at home. So it is helpful if in
addition he cultivates his personal credibility and even something
approaching a power base in interested circles in his own country.
Once a Secretary of State went so far as strongly to encourage me to
do such essentially domestic political work so as to take some of
the pressure off him and his Ministers on a then unpopular cause. So
here is another facet of an ambassador: he must be able to operate
in the area where bureaucracy, public relations and politics all
meet.
When accused of an undiplornatically blunt riposte to President
de Gaulle, a British ambassador (and an outstanding one) is credited
with replying "Do you want me to be man or mouse, politician or
diplomat?" To be good in a hot embassy an ambassador must be
prepared to act the politician and publicist at his own discretion
and take the consequences. Of course to do this he must have the
confidence of his own government and represent their policy
accurately, but the method and timing must often be his own. If
relations between countries can be dealt with in confidence in quiet
rooms, so much the better, but often they cannot be, and the
ambassador must be ready to get movement by going public.
In all these activities the ambassador must retain the confidence
of the government to which he is accredited. When the policies and
interests of the sending and receiving states diverge in important
respects, it is the ambassador's duty to warn against it and explain
the consequences. This usually involves the speaking or writing of
disagreeable truths. It is not enough, however, to be truthful - the
ambassador must also be believable. He may have to be clear at the
expense of being tactful, since he must above all make sure that
each government doesn't misunderstand what the other's intentions
are, and the ambassador must see that the dialogue is maintained in
a way in which it can continue. This task can be appallingly
difficult, but personal integrity can carry an ambassador through.
Ellsworth Bunker's embassy in Vietnam, and Henry Kissinger's
negotiations with both China and the Middle East states are examples
of how this problem can be surmounted.
So we have a further facet of a good ambassador-integrity. One
who attempts to persuade by overstating his case - or who seeks to
please by understating problems will eventually lose all
credibility, and how often has one seen this happen with the
self-appointed unofficial intermediaries who too often muddy
international relations!
In conclusion, what about the merits of political as opposed to
career ambassadors? Though not infrequent, political appointments
are not in the British tradition, but with some notable exceptions
they have usually been a great success. But as this essay suggests,
to be an ambassador requires special disciplines and a knowledge of
dos and don'ts most easily acquired by the long experience that goes
with career. Moreover it is difficult for an outside appointee to
perform the leadership-of-a-team function that gets the best out of
an embassy - though some political appointees have done it with
marked success simply because they were that sort of person. And
this is the crux of the matter: appointments to important embassies
should be made because appointees have the right characteristics to
fill the job, either through career experience or other
qualifications, but not because they are either career diplomats or
politicians.
Nevertheless, a well-run diplomatic service ought to be able to
field suitable career candidates for virtually all embassies, though
there have been and always will be exceptions. Indeed some of the
great names of post-war diplomacy have been political appointees -
though so have some of the outstanding failures. However, if
political appointments were to become the rule rather than the
exception and fill the majority of embassies of importance, the
career service would cease to attract or retain the right caliber of
entrant, and the country would reap double trouble from
inexperienced ambassadors supported by deteriorating staff. |