The Association for Diplomatic Studies and Training Foreign Affairs Oral History Project ARCHIE M. BOLSTER Interviewed by: Charles Stuart Kennedy Initial interview date: January 24, 1992 Copyright 1998 ADST TABLE OF CONTENTS Background Schooling in Netherlands University of Virginia U.S. Navy Entry into Foreign Service 1959 Cambodia 1959-1960 Disbursing officer Political work Impressions if Prince Sihanouk Persian Language Training 1960-1961 Tabriz, Iran 1961-1963 Vice consul White Revolution The mullahs Tehran, Iran 1963-1966 Consular officer Student vise matters Political officer Contacts with opposition Impression of Shah AID CIA INR (Iran) 1966-1968 Iranian political dynamics Noting Shah’s weaknesses Shah not liked by embassy 1 Economic Bureau 1969-1971 Trade and Energy U.S. restrictions on Canadian il imports Oil industry under pressure from foreign sources Wisconsin University 1971-1972 Study on land tenure Vietnam and student activists New Delhi, India 1972-1974 Assistant to ambassador Political officer Indian-Soviet relations Closing U.S. Aid program Ambassador Moynihan Friction over U.S. –Pakistan relations Tehran, Iran 1974-1976 Deputy chief political section Grandiose projects from oil wealth Impressions of Shah Huge military buildup Problems with Washington Training-poor impression created by some U.S. institutions Mullahs and their influence Lack of embassy attention to mullahs Khomeini sermons on take Problems over status0offorces arrangements Commerce Department Energy and oil issues Antwerp, Belgium 1978-1981 Consul General Flemish-Walloon differences Theater nuclear force issues Security Assistance 1981-1983 Budgeting Economic Bureau 1983 Aviation rights INTERVIEW 2 Q: January 24, 1992. This is an interview with Archie M. Bolster on behalf of the Association for Diplomatic Studies. I am Charles Stuart Kennedy. I wonder if you would give me a little about your background...where you were born, grew up, were educated, etc.? BOLSTER: I grew up in Montana which was a rather unusual background for people in the Foreign Service. I left my boyhood home of Bozeman, Montana in 1945 with my parents to go overseas to live in Iran. My father took a job as the first agricultural attaché that we ever had in Iran. He had been recruited under the Foreign Service Auxiliary arrangement which was a brand new way to bring specialized knowledge into the Foreign Service to do specialized jobs. Having been trained as an agricultural economist he was then recruited to go overseas in this job. So we left New Year's Eve of 1945. Q: How old were you? BOLSTER: Well, I was born in 1933 so I was only twelve. Q: Did you get any feeling of the tenseness with the Soviets sitting up in Azerbaijan area? BOLSTER: Yes, we certainly did. In fact, when we arrived there in early 1946 and eventually got settled after living in a hotel, my father started to take trips around the country in line with his work to estimate crop yields and do the type of reporting that agricultural attachés do. On one of his trips he tried to go to Azerbaijan and was turned back by the Soviet guards at Qazvin and told that he could not go into that area of the country. He tried to argue his way in by saying that he was attached to the American Embassy, but the guard was very firm and he couldn't go in there. I wasn't along on that trip, but another time we were in the town of Karaj, just northwest of Tehran. We had been visiting an agricultural college out there. We started back to the city and on the way we passed the Iranian troops going to retake Azerbaijan. That was the time when Iran took back their Azerbaijan province after the Soviets pulled out their support for the puppet government there. That was an exciting time for a young boy to see that. Q: Where did you go to college? BOLSTER: After time in both Iran and Holland, I came back and went to one year of high school and then went to the University of Virginia in 1951. That was the time when I first became a resident of this area. Q: What attracted you towards foreign affairs? Was this your early experience or were there other factors? 3 BOLSTER: I think it certainly was that experience of living overseas, although living in the Netherlands wasn't as different. Living in Iran was a really different experience for someone of that age. I found it all fascinating and as I debated various ideas about what career I might pursue, I kept ending up with something to do with international affairs. So I decided to major in foreign affairs at the University of Virginia. Q: How did you get into the Foreign Service? BOLSTER: Like so many people I took the exam although it was a bit difficult to work out since I was in the Navy for three years right after college. But I was able to take the exam and when I passed that I was able to go for my orals during the middle of my Naval career. After completion of that short career of three years of active duty, having been in the ROTC program, I went immediately into the Foreign Service. Q: When did you go in? BOLSTER: July, 1958. Q: What was your first assignment in the Foreign Service? BOLSTER: Well, strangely enough they needed volunteers to become disbursing officers. I had never done much of anything of this type but they said the advantage was for the two of us who volunteered for this out of my class, would be the first ones to go overseas and the others would be posted in Washington. So the two of us indeed did go overseas. George Clift went to Havana and I went to Phnom Penh, Cambodia. The rest of our colleagues stayed in Washington. I was already back from Cambodia and ready to go to Persian language training when a lot of my colleagues were still on their first tour in Washington. Q: What was the situation in Cambodia? You were there from 1959-60. This must have been a rather interesting time. BOLSTER: Well, it was and we were fortunate enough to be there at a time when there was a bit of a lull between various period of upheaval in Cambodia. We were able to travel around by car and things like that. There were a few incidents that started to occur about the time we left. Tire slashing and things like that that were clearly done to put some kind of pressure on the US. But we were able to live a fairly normal life there. Q: How did you feel about being a disbursing officer? Did you feel out in right field as far as the Embassy was concerned? BOLSTER: Not really because it was an executive job like so many things are and you have a staff of people who are trained to do all the accounting, the writing of checks, etc. You are responsible for the conduct of the office and financially responsible for all the millions of dollars that you control in that job, but as long as you run it properly it is really quite a manageable job. 4 After I got my feet on the ground and got fairly use to the job, I then began to ask for other types of work so that I could broaden out my career. So I was able to go up sort of half days to work in the political section helping with summaries of the press. They used to send in a weekly airgram. I don't know if anyone ever read it, but there was a weekly summary of the local press. It took a lot of reading. I couldn't read Cambodian, obviously, so there were translators who translated specific Cambodian language articles into French. So I read those translations and the French language press and summarized the main points. That was an interesting activity to get into and I was included in all of the normal types of receptions, work cocktail parties, etc. Q: Who was the ambassador at that time? BOLSTER: William Trimble. Q: What was his style of operating? BOLSTER: I found him a very organized and proper person who was not very easy to get to know at the beginning in an informal way. But he was a very caring and decent person. Very nice to deal with when you got to know him a little better. I always felt a little bit sorry for him because he had come into the Service under the Wriston program having risen fairly high in the Civil Service in Washington and then went to Bonn as DCM. From there he came to Cambodia as Ambassador. I always thought that was quite a cruel transition for someone to go from Germany to tropical Cambodia. Also dealing with Sihanouk was a real chore because he was so hard to get to analyze, it was hard to predict what he would do next. Q: He was erratic as least from our standpoint. BOLSTER: Very erratic from our point of view. From his point of view he was simply being flexible in dealing with situations as they arose. Q: I heard stories that everybody used to watch his weight because at a certain point he would start a diet and then he would get really erratic. BOLSTER: Well, I have also been to rallies where he spoke before tens of thousands of Cambodians...he would do these things fairly regularly and every once in a while when something was not going his way he would resign. He would tell everyone that he had done his best and tried his hardest and you still are not satisfied so he quits. Then, of course, there would be moanings and wailings and everyone would demand that he change his mind. Then he would agree to keep on. He played the crowds. He was looked upon as almost a god by the people in rural Cambodia. I have heard stories of him going on trips and everyone just bowing down to 5 the ground in front of him and believing that everything he said was not just word from their prince, but a god. Q: Despite all the convolutions Cambodia has gone through, he is still around. BOLSTER: Yes, it is really incredible. It was like turning the clock back seeing him go back to Cambodia last year. He is a real survivor, you have to say that for him. Q: You left there in 1960 and went back to Persian training, is that right? BOLSTER: Yes. I had requested hard language training. My first choice was Arabic and my second choice was Persian or Farsi. I was assigned to the 10-month coarse at FSI (Foreign Service Institute) and because of the timing I had to come back before I had completed my two year tour. I felt good about leaving Cambodia because I had worked with my deputy to the extent that he became disbursing officer and ran the job single- handedly, whereas I had been one of two Americans. So I was pleased that this assistant who had moved up and done a nice job. So we really in effect cut one American position from the payroll. Q: You then served in Iran from 1961-66. Where did you go first and what was the situation when you arrived in Iran? BOLSTER: I, of course, had done a lot of studying about Iran in the coarse of taking Farsi. This was the time when the Amini government was in power and they were looked upon as somewhat favored by the United States. We wanted them to make the country progress and Amini was sort of the fellow who could do this as the Shah was going to give him a certain amount of leeway in running things to try to meet certain goals that were shared between the two governments. That was more or less the atmosphere when I arrived there. I went to Tabriz where my assignment was as vice consul. I was doing all kinds of different jobs but very little consular work because there were so few people applying for visas up there. While I was there one of the main tenets of the Shah's evolving program was first three, then six and eventually twelve points of the white revolution. The main point of the three at the beginning was land reform. I found it fascinating to get into that because having studied economics in college as well as foreign affairs, I was interested in this subject. Right there on my doorstep began the first land reform pilot project in a town called Maragheh in Azerbaijan. As vice consul it was my job to go down there, look into what was happening and write reports on the land reform program. Q: I have heard it said that the Shah went through these white revolutions to make the Western world, particularly the Americans, feel happy but it really didn't do much. What was your impression of how this was working? 6 BOLSTER: Actually I think it did a lot. It, of course, was eventually oversold and the accomplishments were overplayed. But land reform, itself, was really quite substantial. It was substantial for several reasons. One of them was that, as I mentioned, the Shah was giving Amini room to make a lot of decisions, at least as long as they didn't affect his own power base. In his cabinet was Arsanjani, who was this Iranian economist who became the Minister of Agriculture. He was determined to make land reform effective and in fact used it to improve his own power base. He always gave credit to the Shah, of course, but he didn't mind if many peasants had it in mind that they got their land through him, the Minister of Agriculture. Eventually the Shah did have him moved out of his job because he was getting too popular and sent him off to be ambassador in Italy. That was a way to cutting Arsanjani down to size. After he left the land reform program never quite did as much in the later stages as it did in the beginning. But it was quite an effective program. I went down and studied it to the extent that I used my Farsi to talk with villagers and people who actually had gotten land and how they were getting along. My conclusion was basically that people who received land were quite able to till; they knew what to do; they were excited about having land and worked much harder on the land when they knew it was theirs. Q: Prior to that had it been a big landlord system? BOLSTER: Yes. People were owned almost like serfs. They were attached to their village and the village was owned by the landlord. Typically they had a five part division of the harvest. The person who provided the land got one-fifth; the laborer got one-fifth; the water, the seed, the draft animals, etc. So that in most cases the landlord got four-fifths of what was produced. The farmer just got the fifth representing his labor because he couldn't provide draft animals, water, seed. All of these things were provided by the landlord. Q: What was the political situation in Tabriz? You were there from when to when? BOLSTER: Well, 1961-63. The political situation there was that the land reform program was matched by some other programs that were less popular. One was giving the women the right to vote. I got to know several neighbors near where I lived and was having tea with this retired colonel one afternoon and we were discussing current events. He said, "I am really bothered by giving the women the right to vote." I said, "Well, why is that?" He said, "Well, it is a scientific fact that women's brains are only half as big as men's and therefore if you give them the vote they won't know what to do with it. They won't understand the issues and it will be just a disaster." But aside from that kind of Neanderthal reasoning there were also many people who just felt that it would be sort of an upheaval in a religious sense too. Men always ran everything outside of the house. They did all the marketing which involved going to the bazaar and all. All business and work transactions were all things that men handled. Women were supposed to just stay 7 home, cook, and take care of children, etc. They really felt that it was an upheaval of their whole way of life to have to give women the right to vote. Q: Did you have any feel about the power of the Mullahs in that area during your time? BOLSTER: Yes, you certainly had the clear impression of how important religion was to people because every Friday there were gatherings in all the various neighborhoods. People would take turn hosting receptions open to the people in the neighborhood who went to the same mosque. You could tell that it was a very serious religious attitude on the part of people. They really were concerned about the modernization program, the Shah was maybe eating away at their traditional values. And, indeed, when there were gradually more protests and expressions of unhappiness about the Shah's reform program, they had their own less important but nevertheless riots up in Tabriz that had to be controlled by the police, etc. They were similar to those that were organized down in Tehran in 1963. Q: I have the feeling that up in Tabriz you were playing the often usual role of a small consulate which was that you were more easily able to monitor what was happening in the town than would be the case of an embassy where you are overwhelmed with the society and the bureaucracy, etc. BOLSTER: That is very true. Tabriz, although a city of over 300,000, had the flavor of a small town. Among the elite everyone knew what everyone was doing pretty much. It was a gossipy sort of place where anything that happened would be commented on by everybody. It was sort of like living in a goldfish bowl in a sense. Anything that Europeans did was much more observed and watched than the activities of the citizens there. But in any case there were concerns about the reform program. At the same time we were doing other types of activities. We were keeping track of the Kurds and their situation because the Consul, Bill Eagleton, was reporting constantly on events in Kurdistan and how they were being treated by the central government, which is another major issue. Of course, Bill is one of our best experts on the Kurds and has also done a lot of work on textiles. He has written a book on textile making in Iran, carpets of various kinds. So there were all kinds of things going on there in addition to these reform movements. Q: Did you find you were sort of reporting one world and the Embassy was reporting another? BOLSTER: Actually we were quite coordinated. The consulates did report independently...they sent in airgrams, telegrams directly to the Department...but we also did a lot of cooperative reporting where comments and information from all the consulates, that is from Kermanshah, Isfahan, Mashed and Tabriz would be combined in the Embassy in larger think pieces. 8 For example, an assessment of the Shah's reform program would have in it contributions from the consulates in addition to analysis from the Embassy. I think there was a fairly successful attempt to integrate reporting from the posts. Q: Then I gather you didn't feel that the Embassy had a line that it was pursuing vis-a-vis the Shah and the consulates had better fit into this scheme. Later on this did happen under the Nixon/Kissinger period. BOLSTER: Yes. Q: But I take it this was not the case? BOLSTER: No, I think it was probably because of the personality and Foreign Service background of our Ambassador, Julius Holmes. He was a fantastic person and extremely generous in being willing to find out from the consulates what their views were and to incorporate that into the Embassy reporting. I remember as, of course, a very junior vice consul, going to Tehran on pouch runs and attending Embassy staff meetings, and actually being asked by the Ambassador to give a brief explanation as to how things were going in Tabriz and what our views were on current events, etc. It made you feel that you were really part of the team. You weren't being told that the Embassy knows what is happening. Q: Which does happen in some places. BOLSTER: Yes. But certainly Holmes made it very clear in the Embassy that he wanted reporting to bubble up from people in the Embassy and consulates who were in touch with Iranians and knew what was going on. He did not try to stage manage everything that was said. He, of course, dealt with the Shah and did all that reporting, but he certainly did defer to our judgments as to what was actually happening on the ground. Q: When did you leave Tabriz? BOLSTER: I left in the summer of 1963, went on home leave and then came back in the late fall. Q: You were then in Tehran? BOLSTER: Yes. Q: What were you doing there? BOLSTER: I came back and worked in the consular section for a while because there was a rotation program where people rotated into different jobs. I did both nonimmigrant visas and then citizenship and passport work before I then moved over into the Embassy. 9 Q: How did you find, I am speaking as an old consular officer who used to run into ripples from the Iranian situation through Iranian students applying for visas in Belgrade...how did you find the Iranian student who was applying for visas? Were they a problem? BOLSTER: Oh yes. There were tremendous problems. There were unrealistic expectations as to what they could do in terms of study. You know, people going to the States to study nuclear engineering even though they didn't know English or had only basic science. I think it is fair to say that the Iranian regime figured that letting students go off on student visas was a way to release some of the pressure that people might otherwise put on the government for change. They really had no limitation on how many people could go overseas. So a family with any money would try to send all or as many as possible of their children off to study, whether in France, Germany, England, the US, whatever, so there was a tremendous pressure to get visas. It didn't matter really what kind of requirements you set up they would all manage to meet them in some way and try to convince you that they deserve a visa. So there was a tremendous pressure. It was very hard to sort out the truth as to why people were going and what their qualifications were. But it worked both ways, we also knew there were many fraudulent I-20s coming, these were forms the American schools do to welcome a foreign student to come to their school. We knew that these things were turned out by some fly-by-night school, dozens and dozens of blank forms, signed and sent to counselors in a bazaar in Iran who would then get a student and sell an I-20 to him in exchange for a briefing on how to get a visa. When we tried to find out about this back through the Department and Justice, we were eventually told by several Congressman that it was none of our business to look into whether these I-20s were correct or not, just to give the visas and not raise trouble. So it was a very difficult situation. We knew from some of the feedback that some of these students were not going to the schools where they were supposed to go. They would be assigned to some school on the East Coast and they would try to enter from San Francisco. The INS was constantly sending us notes about various people who had changed their status or never showed up where they were supposed to go to school. It was a mess. Q: After your time as consular officer which section did you go to? BOLSTER: I went into the political section and basically did reporting on the reform program and internal Iranian developments. Q: What was the difference between the view from Tabriz and the view from Tehran from your point of view? Did you have to work mostly through the bureaucracy in Tehran or were you able to get out? BOLSTER: I could get out. Tehran had its own consular district so we would work in trips. In fact, I found out about some studies that had been done at Tehran University 10