The Foreign Service Journal, December 2018

THE FOREIGN SERVICE JOURNAL | DECEMBER 2018 75 AFSA NEWS Dissent Is a Responsibility CHRISTIAN A. HERTER AWARD FOR CONSTRUCTIVE DISSENT BY A SENIOR FOREIGN SERVICE OFFICER THOMAS A. SHANNON JR. AFSA CONSTRUCT I VE D I SSENT AWARDS Ambassador Thomas A. Shannon Jr. receives this year’s Christian A. Herter Award for constructive dis- sent for his principled efforts to promote extension of temporary protective status (TPS) for citizens of Hon- duras, Nicaragua, Haiti and El Salvador while serving as under secretary of State for political affairs (P). U/S Shannon’s efforts to persuade Secretary of State Rex Tillerson ultimately did not prevail, but his principled dissent showed him to be, according to the award nomination, “a role model of professionalism, integ- rity and leadership for the department.” His efforts to preserve TPS “demonstrated his belief of the need to stand firm on one’s own principles, rather than bowing to politi- cal pressure.” At the awards ceremony, Amb. Shannon said that receiving the award was “made sweeter by AFSA’s understanding that dissent, and the energetic debate that underlies it, is an essential component of our duty. It is as important a part of our duty as discipline and obedi- ence. Dissent, as understood and practiced in the Foreign Service, is not just about per- sonal integrity. It is also about professional integrity, and the integrity of our policymaking process.” Citizens of Honduras, Nica- ragua and El Salvador were granted TPS in 1999 after Hurricane Mitch devastated these countries; citizens of Haiti were granted TPS in 2010 after an earthquake left much of the island uninhabit- able. Temporary immigration status is granted to eligible nationals of a country that is suffering from“extraordinary and temporary conditions.” TPS allows beneficiaries to remain in the United States until the status is removed. In September 2017, DHS requested that the depart- ment issue foreign policy guid- ance on whether to extend TPS for the four countries. Unlike previous administra- tions, the Trump administra- tion indicated early on it was not inclined to renewTPS. In their initial response, the bureaus of Western Hemi- sphere Affairs and Popula- tion, Refugees and Migration recommended another three- year extension. However, after the Policy Planning Staff (S/P) argued that revocation was in line with the president’s deci- sion on the Deferred Action for Childhood Arrivals program, WHA and PRM changed their recommendation, instead suggesting revocation of TPS for all four countries. Then-Under Secretary of State for Political Affairs Tom Shannon argued that State’s bureaus should not bend under domestic political pres- sure but should provide the Secretary with the full range of foreign policy implications. He encour- aged the bureaus to reconsider and urged them to put forward a split memo to the Secretary. PRM reverted to its original position; WHA and the Policy Planning Staff (S/P) recom- mended revocation. Because of Amb. Shannon’s initiative, the Secretary received more nuanced arguments on TPS, with pros and cons for each recommendation. U/S Shannon also submit- ted a note to the Secretary outlining his personal views of TPS. He shared it widely with relevant bureaus. Drawing on his experience in Latin America, he argued in favor of maintaining TPS. In so doing, he demonstrated to the department how dissent can and should be carried out, showing a younger generation of Foreign Service and Civil Service members how to offer alternative views construc- tively inside the system. U/S Shannon has a bachelor’s degree in govern- ment and philosophy from the College of William and Mary and master’s and doctorate degrees in politics from the University of Oxford. During a 34-year Foreign Service career, Shannon served in Guatemala, Brazil (twice), South Africa and Venezuela. InWashington, D.C., he served as director of inter-American affairs at the National Security Council and as special assistant to the president and NSC senior director for WHA. At the State Department, he served as desk officer for Cameroon, Gabon and São Tomé and later as assistant secretary for the Bureau of Western Hemisphere Affairs (2005- 2009), ambassador to Brazil (2010-2013), counselor (2013- 2016) and under secretary for political affairs (2016-2018). He retired in mid-2018 as the highest-ranking career FSO, with the personal rank of Career Ambassador. In Octo- ber, he was chosen as the U.S. co-chair of the board of the Inter-American Dialogue. n Ambassador Tom Shannon at a U.S. Paralympics team event in 1994. U.S.DEPARTMENTOFSTATE Profiles of award recipients compiled by Donna Gorman.