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Diplomatic Diversity Fails (Again and Again) at State Department
America’s diplomat corps is the latest victim of diversity uber alles. Choosing diplomats for the 21st century is now about the same process as choosing which gummy bear to eat next. But fear not, because the State Department assures us America will have “an inclusive workforce that… represents America’s rich diversity.” At issue is the rigorous entrance exam, which once established a color-blind base line of knowledge among all applicants and was originally instituted to create a merit-based entrance system.
Until now, becoming an American diplomat started with passing a written test of geography, history, basic economics, and political science, the idea being it was probably good our diplomats knew something of all that. The problem was that racially things never quite added up; no matter what changes were made to the test or even if it was administered after an applicant had served two internships with State (below), blacks and other colors of persons could not pass in the right magic numbers. The answer? State has now simply done away with passing the test in favor of a “whole person” evaluation, similar to how many universities and the dead SAT gateway currently work.
The irony is the test was instituted to avoid backroom decisions on color (and religion, education, and peerage.) When America first found itself in need of a real diplomatic corps in the 19th century, there were three qualifications: male, pale, and Yale. The Rogers Act of 1924 was the first attempt to even out the playing field, instituting a difficult written examination everyone had to pass. The Rogers Act also created the Board of the Foreign Service and the Board of Examiners to choose candidates in lieu of smoky back room conferences.
But since the 1924 system never quite broke the hold of the Ivy League, a new law in 1946 Act closed down the Board of the Foreign Service Personnel and created the position of Director General to oversee a more fair system for recruitment and personnel. Yeah, you guessed it, that did not broaden diversity much either, so the present system of testing was rolled into place to fix everything via the Foreign Service Act of 1980. A tough written exam was to be followed by a tougher oral exam, all done blind — no one would know the background of the candidates or their race until the final steps. It did not work, at least in the sense people of color still seemed to lag statistically behind. So more interim steps were added, to include a series of personal essays (the “QEP”) to allow candidates to gain “life points” in addition to their performance on the tests. The written test was still retained as a threshold step. One had to pass it to move on to compete further for a coveted foreign service job.
More help was on the way. Study guides were created, and flash cards sold online. Test prep courses were started. Outside psychologists were brought in, and test administration was turned over to a private company, all in the name of eliminating biases. None of it worked. Blacks sued the State Department. Women sued the State Department. Hispanics argued they were not treated fairly. State created a Chief Diversity and Inclusion position. But still in 2013 the Senior Foreign Service, the top jobs at State, was 85 percent white. In 2021 it was 86 percent white. The broader diplomatic corps remained 80 percent white. State stayed stubbornly undiverse.
Where nothing else succeeded, State created two fellowships that have been used as vehicles to recruit people of “diverse backgrounds,” who worked out to be overwhelming black. In place are the Thomas Pickering Fellowship (run by HBCU Howard University) and the Charles B. Rangel Fellowship. Both claim entrants take the same entrance exams as anyone else, but omit that they do so after two summer internships with the State Department, plus assigned mentors. Fellows are also identified as such to those administering the oral exam required of all prospective diplomats. Having administered the oral exam myself, I knew I would have to justify to my boss’ boss any move to fail a Fellow before being overruled by her anyway. The programs increased the number of unwhite diplomats, as they were intended to do as a separate but equal pathway.
The problems came down the road, when black diplomats encountered the same promotion and evaluation system their white, green, and blue colleagues did. Diversity in the senior ranks of the State Department actually regressed over time. In 2008, black diplomats made up about 8.6 percent of the top ranks of the diplomatic corps. By 2020 only 2.8 percent of the same top ranks are black. The answer? It must be more racism (characterized diplomatically as “institutional barriers.”) Suggestions focused on offering blacks more fellowships to create a bigger pool, and creating special opportunities for blacks to snag better assignments (described as “promote diverse officers’ career development.”) That of course simply repeats the original sin of pushing less-prepared people upward to their point of failure. FYI: the State Department classifies most of its gender and race promotion results and does not generally release them to the public. However, data leaked to the NYT shows that only 80 black diplomats and specialists were promoted in the 2019 fiscal year, about one percent.
So under Joe Biden, the next step seemed obvious: do away with the threshold examination. Under new rules, everyone who takes the test goes on to the next stage, no matter if they do well, or poorly (formerly known as “failing.”) State has taken its hiring process full-circle, when again behind closed doors someone decides who moves forward based on race. State will thus absolutely ensure the right blend of flavors get through. So not the best of the best, but the best in each racial bucket, will pass. While a university has four years to try and educate or drop an unqualified candidate wrongly admitted, State will live with the mistakes these unqualified applicants make globally. As will America. Good luck everybody!
Copyright © 2020. All rights reserved. The views expressed here are solely those of the author(s) in their private capacity.
Diversity Fail at State Department
Politico just revealed a dirty little secret: the U.S. State Department was a more diverse workplace in 1986 than it is today. Despite efforts to recruit a more diverse pool of diplomats, the Department has failed miserably to promote them, and ultimately to retain them, even under Bill Clinton and Obama/Hillary.The Politico article does a comprehensive job of describing how the agency that represents America does not look like America. Minority staff made up 12.5 percent of employees at the end of the 1980s. Today black women make up nine percent, and just three percent of the Senior Foreign Service (the military equivalent of general) is black. And don’t fooled by statistics; we’re talking here about the Foreign Service, the elites, the diplomats. State will often intermix racial data from the Washington DC-based civil service, which is mostly minority people, to confuse outsiders.
The Politico article, however, does a poor job of answering the question of why this is. It shows its 2021 bias with one solution “for more white men to miss out on recruitment or promotion.”
State does have a diversity problem. It just is diversity of socio-economic class, not race or gender. State rarely imposes a quality standard on its work, meaning everyone’s job description is the same: just make your boss happy. That preserves the class system, and empowers those who would harass and discriminate.
As a white man I was sort of part of a diversity program when I joined the State Department in 1988 for what turned out to be a 24 year career as a diplomat. State, from Thomas Jefferson’s tenure forward, followed a simple recruitment formula of “male, pale, and Yale.” In the late 1980s they decided male and pale (white) were good, but limiting recruitment to the Ivy League schools and their equivalents like Stanford and Georgetown was the problem. Someone found me and others like me at state schools and woosh, we were diversity-forward diplomats.
But from Day One, with little change through today, it was clear not all pigs were equal. State divides its diplomatic work force into five specialities, known as cones. Only one matters in terms of a realistic shot at senior policy making roles, the Political cone. These people do what passes as traditional diplomacy. They and their work dominate the news and thus the Secretary of State’s world. The other cones fill in gaps and get hand-me-down senior promotions which are adequate in the Economic cone, down to nearly non-existent for the proletarian Consular cone that issues visas.
Like at Hogwarts, new diplomats are sorted on entry to a cone which is very, very hard to change (seriously, the process is called a Snape-like “conal rectification.”) Ivy Leaguers can expect Political, kids from schools with good football teams Administration or Consular. All of this excludes political appointees, friends or large donors of the president who get appointed to the highest jobs without spending any time in the diplomatic corps.
The Political cone, a club within the club, has proved porous enough for properly educated women. The key criteria is and has always been socio-economic background anyway, usually demonstrated by an Ivy diploma, not race or gender. The little climbing room for outsiders is provided by State-sponsored mid-career education, when a chosen few are sent off to Georgetown or the Kennedy School as midwestern losers to return two years later an honorary blue blood.
The Government Accounting Office found among junior diplomats Ivy League grads had a 23 percent higher chance of promotion than colleagues with only a standard undergrad degree. And it is not just entry level diplomats and ambassadorships. Key internal positions like political and policy Assistant Secretaries are similar. Of course good old racism is still in the game when 87 percent of senior State Department personnel are white, compared with only three percent black. And of course the restrictive policies based on race, etc., at Ivy League schools means fewer “qualified” black people are produced for State to choose from, so the classic racism argument does apply indirectly. Just ask the Jews forbidden to attend Harvard who could not get into the State Department back in the day.
What the successful diplomats in the Political cone seem to already know from Yale is what creates the full-spectrum lack of diversity. People call it The Code. Life is not fair, so best to have an advantage. Career success depends on the people above you and your relationship to them, and “trouble maker” is a bad one. Pleasing your betters is more effective then being right at a cost. There are rules, and if you do not know them you cannot follow them. And most of all, 99 percent of what matters is never written down. You are either trusted and welcomed into the circle or you are not.
Advantages are everywhere, but usually start with who your parents are and which brand name professors you connected with in your brand-name college. The celebrity professor at Georgetown has close friends and former students for you to meet at State. The history teacher at Montana State, no. State has an up-or-out system, meaning almost all diplomatic new hires enter at the same bottom rung, and slowly advance over their careers upward. Somebody above you when you join is thus likely to stay above you for decades. There will not be any new blood flowing in. Make someone angry in 1990 in Taiwan and they’ll still be there waiting for you in 2010 in London. The people above you will write your performance reviews, sit on your promotion panels, and decide your assignments, all in private with little accountability, and all of which determine who sinks and swims. If you’re looking for the smoking gun on State’s diversity failure, for most of the past three decades most of that power was concentrated in one man, Ambassador Pat Kennedy (white, male, Georgetown) now retired.
Those same people learned State is a change-adverse bureaucracy that likes things that way. Change at State is externally driven and internally resisted. The attitude at the top (except for public relations appearances, like making sure a few black folks are in public-facing positions) thinks the system has no need to change, it got it mostly right the first time. The proof is they themselve were promoted, and they saw their competitors stumble. People who want to do things different, make changes, etc., are generally shunned as troublemakers. The lack of interest in change is enhanced by the fact that State does little that can be objectively measured to allow someone to jump ahead. No sales figures, items sold, or stock prices to count toward promotion. Just exist for the most part, the details matter little except what your boss thinks.
Here’s how that works in practice. No one does anything substantive alone at State. Most everything is a collaborative effort controlled by the clearance process. Say you write a report on metallurgy in India. You, the lowest on the rung, are directed to do this and you do all the heavy lifting gathering info and writing. Dozens of people above you, and depending on the subject that list can include people all the way up to the Secretary of State’s staff, then have to sign off, agree with you, “clear” your work. If one guy objects and won’t clear, your work cannot pass go to the next person until he is happy.
If your report says basically the same thing as last year’s, that is safe and people clear it (one exception is if someone in the chain wants to make a political move and then directs you to come to a different conclusion, say to justify a budget increase as “matters have gotten worse.” You’re still just doing what you are told.) If you try and write something different from what you are told to write (often told implicitly, it is a skill to figure out what’s wanted because no one will jot down “Cook the data to match last year. Hope some reporter doesn’t see this. LOL.) your boss can’t clear it. If she is also a troublemaker and does clear, your work will likely just get stopped at a higher level, and that means a more important person will think you’re a troublemaker. Good bosses will thus try and protect their underlings by not clearing, keeping your problem inside the office.
Absent any real measure of your work, your professional success is thus controlled by what State calls unofficially “corridor reputation,” basically what the people above you think of you. Imagine high school at the DMV. Careers are made or lost by a senior diplomat telling a peer “He’s OK, I’d bring him along” or “I heard he’s a problem, didn’t work out somehow in Beijing.” The official version of this is known as “lack of suitability,” a generic term which means you do not deserve a security clearance, or just can’t be trusted with the sensitive stuff.
People in the right socio-economic groups seem to understand this stuff intuitively and, helped by others who think the same, get promoted. People from the wrong side of the tracks no matter their color do not understand the code so readily, and often are full of ambition to “make a mark.” They self-label themselves as not being part of the club and whether they know it or not, self-select out.
So State can recruit all the people of color they can only to watch them slowly slide down the ladder along with lots of clueless whites who no one really cares about statistically. That is why many of both groups quit, or suffer in bureaucratic place to wait out pensions, and why State recruits minorities but cannot retain them. The result is a lack of diversity that has plagued the State Department for decades, both in race, and thinking.
Copyright © 2020. All rights reserved. The views expressed here are solely those of the author(s) in their private capacity.
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