diplomacy


diplomacy
/di ploh"meuh see/, n.
1. the conduct by government officials of negotiations and other relations between nations.
2. the art or science of conducting such negotiations.
3. skill in managing negotiations, handling people, etc., so that there is little or no ill will; tact: Seating one's dinner guests often calls for considerable diplomacy.
[1790-1800; < F diplomatie (with t pronounced as s), equiv. to diplomate DIPLOMAT + -ie -Y3]

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Art of conducting relationships for gain without conflict.

It is the chief instrument of foreign policy. Its methods include secret negotiation by accredited envoys (though political leaders also negotiate) and international agreements and laws. Its use predates recorded history. The goal of diplomacy is to further the state's interests as dictated by geography, history, and economics. Safeguarding the state's independence, security, and integrity is of prime importance; preserving the widest possible freedom of action for the state is nearly as important. Beyond that, diplomacy seeks maximum national advantage without using force and preferably without causing resentment.

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Introduction

      the established method of influencing the decisions and behaviour of foreign governments and peoples through dialogue, negotiation, and other measures short of war or violence. Modern diplomatic practices are a product of the post-Renaissance European state system. Historically, diplomacy meant the conduct of official (usually bilateral) relations between sovereign states. By the 20th century, however, the diplomatic practices pioneered in Europe had been adopted throughout the world, and diplomacy had expanded to cover summit meetings and other international conferences, parliamentary diplomacy, the international activities of supranational and subnational entities, unofficial diplomacy by nongovernmental elements, and the work of international civil servants.

      The term diplomacy is derived via French from the ancient Greek diplōma, composed of diplo, meaning “folded in two,” and the suffix -ma, meaning “an object.” The folded document conferred a privilege—often a permit to travel—on the bearer, and the term came to denote documents through which princes granted such favours. Later it applied to all solemn documents issued by chancelleries, especially those containing agreements between sovereigns. Diplomacy later became identified with international relations, and the direct tie to documents lapsed (except in diplomatics, which is the science of authenticating old official documents). In the 18th century the French term diplomate (“diplomat” or “diplomatist”) came to refer to a person authorized to negotiate on behalf of a state.

      This article discusses the nature of diplomacy, its history, and the ways in which modern diplomacy is conducted, including the selection and training of diplomats and the organization of diplomatic bodies. For a discussion of the legal rules governing diplomatic negotiation and the preparation of treaties and other agreements, see international law. One venue for diplomacy, the United Nations (UN), is considered in detail under that title.

Nature and purpose
      Diplomacy is often confused with foreign policy, but the terms are not synonymous. Diplomacy is the chief, but not the only, instrument of foreign policy, which is set by political leaders, though diplomats (in addition to military and intelligence officers) may advise them. Foreign policy establishes goals, prescribes strategies, and sets the broad tactics to be used in their accomplishment. It may employ secret agents, subversion, war, or other forms of violence as well as diplomacy to achieve its objectives. Diplomacy is the principal substitute for the use of force or underhanded means in statecraft; it is how comprehensive national power is applied to the peaceful adjustment of differences between states (state). It may be coercive (i.e., backed by the threat to apply punitive measures or to use force) but is overtly nonviolent. Its primary tools are international dialogue and negotiation, primarily conducted by accredited envoys (a term derived from the French envoyé, meaning “one who is sent”) and other political leaders. Unlike foreign policy, which generally is enunciated publicly, most diplomacy is conducted in confidence, though both the fact that it is in progress and its results are almost always made public in contemporary international relations.

      The purpose of foreign policy is to further a state's interests, which are derived from geography, history, economics, and the distribution of international power. Safeguarding national independence, security, and integrity—territorial, political, economic, and moral—is viewed as a country's primary obligation, followed by preserving a wide freedom of action for the state. The political leaders, traditionally of sovereign states, who devise foreign policy pursue what they perceive to be the national interest, adjusting national policies to changes in external conditions and technology. Primary responsibility for supervising the execution of policy may lie with the head of state or government, a cabinet or a nominally nongovernmental collective leadership, the staff of the country's leader, or a minister who presides over the foreign ministry, directs policy execution, supervises the ministry's officials, and instructs the country's diplomats abroad.

      The purpose of diplomacy is to strengthen the state, nation, or organization it serves in relation to others by advancing the interests in its charge. To this end, diplomatic activity endeavours to maximize a group's advantages without the risk and expense of using force and preferably without causing resentment. It habitually, but not invariably, strives to preserve peace; diplomacy is strongly inclined toward negotiation to achieve agreements and resolve issues between states. Even in times of peace, diplomacy may involve coercive threats of economic or other punitive measures or demonstrations of the capability to impose unilateral solutions to disputes by the application of military power. However, diplomacy normally seeks to develop goodwill toward the state it represents, nurturing relations with foreign states and peoples that will ensure their cooperation or—failing that—their neutrality.

      When diplomacy fails, war may ensue; however, diplomacy is useful even during war. It conducts the passages from protest to menace, dialogue to negotiation, ultimatum to reprisal, and war to peace and reconciliation with other states. Diplomacy builds and tends the coalitions that deter or make war. It disrupts the alliances (alliance) of enemies and sustains the passivity of potentially hostile powers. It contrives war's termination, and it forms, strengthens, and sustains the peace that follows conflict. Over the long term, diplomacy strives to build an international order conducive to the nonviolent resolution of disputes and expanded cooperation between states.

      Diplomats are the primary—but far from the only—practitioners of diplomacy. They are specialists in carrying messages and negotiating adjustments in relations and the resolution of quarrels between states and peoples. Their weapons are words, backed by the power of the state or organization they represent. Diplomats help leaders to understand the attitudes and actions of foreigners and to develop strategies and tactics that will shape the behaviour of foreigners, especially foreign governments. The wise use of diplomats is a key to successful foreign policy.

History of diplomacy

The ancient world (primitive culture)
      The view in late medieval Europe that the first diplomats were angels, or messengers from heaven to earth, is perhaps fanciful, but some elements of diplomacy predate recorded history. Early societies had some attributes of states, and the first international law arose from intertribal relations. Tribes (tribe) negotiated marriages and regulations on trade and hunting. Messengers and envoys were accredited, sacred, and inviolable; they usually carried some emblem, such as a message stick, and were received with elaborate ceremonies. Women often were used as envoys because of their perceived mysterious sanctity and their use of “sexual wiles”; it is believed that women regularly were entrusted with the vitally important task of negotiating peace in primitive cultures (primitive culture).

      Information regarding the diplomacy of early peoples is based on sparse evidence. There are traces of Egyptian diplomacy dating to the 14th century BC, but none has been found in western Africa before the 9th century AD. The inscriptions on the walls of abandoned Mayan cities indicate that exchanges of envoys were frequent, though almost nothing is known of the substance or style of Mayan and other pre-Columbian Central American diplomacy. In South America the dispatch of envoys by the expanding Incan Empire appears to have been a prelude to conquest rather than an exercise in bargaining between sovereigns.

      The greatest knowledge of early diplomacy comes from the Middle East, the Mediterranean, China, and India. Records of treaties between Mesopotamian city-states date from about 2850 BC. Thereafter, Akkadian (Akkadian language) (Babylonian) became the first diplomatic language, serving as the international tongue of the Middle East until it was replaced by Aramaic (Aramaic language). A diplomatic correspondence from the 14th century BC existed between the Egyptian (Egypt, ancient) court and a Hittite king on cuneiform tablets in Akkadian—the language of neither. The oldest treaties (treaty) of which full texts survive, from about 1280 BC, were between Ramses II of Egypt and Hittite leaders. There is significant evidence of Assyrian diplomacy in the 7th century and, chiefly in the Bible, of the relations of Jewish tribes with each other and other peoples.

      The first records of Chinese and Indian diplomacy date from the 1st millennium BC. By the 8th century BC, the Chinese had leagues, missions, and an organized system of polite discourse between their many “ Warring States,” including resident envoys who served as hostages to the good behaviour of those who sent them. The sophistication of this tradition, which emphasized the practical virtues of ethical behaviour in relations between states (no doubt in reaction to actual amorality), is well documented in the Chinese classics. Its essence is perhaps best captured by the advice of Zhuangzi to “diplomats” at the beginning of the 3rd century BC. He advised them that

if relations between states are close, they may establish mutual trust through daily interaction; but if relations are distant, mutual confidence can only be established by exchanges of messages. Messages must be conveyed by messengers [diplomats]. Their contents may be either pleasing to both sides or likely to engender anger between them. Faithfully conveying such messages is the most difficult task under the heavens, for if the words are such as to evoke a positive response on both sides, there will be the temptation to exaggerate them with flattery and, if they are unpleasant, there will be a tendency to make them even more biting. In either case, the truth will be lost. If truth is lost, mutual trust will also be lost. If mutual trust is lost, the messenger himself may be imperiled. Therefore, I say to you that it is a wise rule: “always to speak the truth and never to embellish it. In this way, you will avoid much harm to yourselves.”

      This tradition of equal diplomatic dealings between contending states within China was ended by the country's unification under the qin emperor in 221 BC and the consolidation of unity under the Han dynasty in 206 BC. Under the Han and succeeding dynasties, China emerged as the largest, most populous, technologically most advanced, and best-governed society in the world. The arguments of earlier Chinese philosophers, such as Mencius, prevailed; the best way for a state to exercise influence abroad, they had said, was to develop a moral society worthy of emulation by admiring foreigners and to wait confidently for them to come to China to learn.

      Once each succeeding Chinese dynasty had consolidated its rule at home and established its borders with the non-Chinese world, its foreign relations with the outside world were typically limited to the defense of China's borders against foreign attacks or incursions, the reception of emissaries from neighbouring states seeking to ingratiate themselves and to trade with the Chinese state, and the control of foreign merchants in specific ports designated for foreign trade. With rare exceptions (e.g., official missions to study and collect Buddhist scriptures in India in the 5th and 7th centuries and the famous voyages of discovery of the Ming admiral Zheng He in the early 15th century), Chinese leaders and diplomats waited at home for foreigners to pay their respects rather than venturing abroad themselves. This “tributary system” lasted until European colonialism (colonialism, Western) overwhelmed it and introduced to Asia the European concepts of sovereignty, suzerainty, spheres of influence (sphere of influence), and other diplomatic norms, traditions, and practices.

      Ancient India was home to an equally sophisticated but very different diplomatic tradition. This tradition was systematized and described in the Artha-shastra (Artha-śāstra) (one of the oldest books in secular Sanskrit literature) by Kautilya, a wily and unscrupulous scholar-statesman who helped the young Candra Gupta (Chandra Gupta) to overthrow Macedonian rule in northern India and to establish the Mauryan dynasty at the end of the 4th century BC. The ruthlessly realistic state system codified in the Artha-shastra insisted that foreign relations be determined by self-interest rather than by ethical considerations. It graded state power with respect to five factors and emphasized espionage, diplomatic maneuver, and contention by 12 categories of states within a complex geopolitical matrix. It also posited four expedients of statecraft (conciliation, seduction, subversion, and coercion) and six forms of state policy (peace, war, nonalignment, alliances, shows of force, and double-dealing). To execute policies derived from these strategic geometries, ancient India fielded three categories of diplomats (plenipotentiaries, envoys entrusted with a single issue or mission, and royal messengers); a type of consular agent (similar to the Greek proxenos), who was charged with managing commercial relations and transactions; and two kinds of spies (those charged with the collection of intelligence and those entrusted with subversion and other forms of covert action).

      Detailed rules regulated diplomatic immunities and privileges, the inauguration and termination of diplomatic missions, and the selection and duties of envoys. Thus, Kautilya describes the “duties of an envoy” as “sending information to his king, ensuring maintenance of the terms of a treaty, upholding his king's honour, acquiring allies, instigating dissension among the friends of his enemy, conveying secret agents and troops [into enemy territory], suborning the kinsmen of the enemy to his own king's side, acquiring clandestinely gems and other valuable material for his own king, ascertaining secret information and showing valour in liberating hostages [held by the enemy].” He further stipulates that no envoys should ever be harmed, and, even if they deliver an “unpleasant” message, they should not be detained.

      The region within which this system operated was separated from its neighbours by deserts, seas, and the Himalayas. India had very little political connection to the affairs of other regions of the world until Alexander the Great conquered its northern regions in 326 BC. The subsequent establishment of the native Mauryan empire ushered in a new era in Indian diplomatic history that was marked by efforts to extend both Indian religious doctrines (i.e., Buddhism) and political influence beyond South Asia. The Mauryan emperor Ashoka was particularly active, receiving several emissaries from the Macedonian-ruled kingdoms and dispatching numerous Brahman-led missions of his own to West, Central, and Southeast Asia. Such contacts continued for centuries until the ascendancy of the Rajput (Rājput) kingdoms (8th to the 13th century AD) again isolated northern India from the rest of the world. Outside the Chola dynasty and other Dravidian kingdoms of South India, which continued diplomatic and cultural exchanges with Southeast Asia and China and preserved the text and memories of the Artha-shastra, India's distinctive mode of diplomatic reasoning and early traditions were forgotten and replaced by those of its Muslim and British conquerors.

      The tradition that ultimately inspired the birth of modern diplomacy in post-Renaissance Europe and that led to the present world system of international relations began in ancient Greece (ancient Greek civilization). The earliest evidence of Greek diplomacy can be found in its literature, notably in Homer's Iliad and Odyssey. Otherwise, the first traces of interstate relations concern the Olympic Games of 776 BC. In the 6th century BC, the amphictyonic (amphictyony) leagues maintained interstate assemblies with extraterritorial rights and permanent secretariats. Sparta was actively forming alliances in the mid-6th century BC, and by 500 BC it had created the Peloponnesian League. In the 5th century BC, Athens led the Delian League during the Greco-Persian Wars.

      Greek diplomacy took many forms. Heralds (herald), references to whom can be found in prehistory, were the first diplomats and were protected by the gods (Greek mythology) with an immunity that other envoys lacked. Their protector was Hermes, the messenger of the gods, who became associated with all diplomacy. The herald of Zeus, Hermes was noted for persuasiveness and eloquence but also for knavery, shiftiness, and dishonesty, imparting to diplomacy a reputation that its practitioners still try to live down.

      Because heralds were inviolable, they were the favoured channels of contact in wartime. They preceded envoys to arrange for safe passage. Whereas heralds traveled alone, envoys journeyed in small groups, to ensure each other's loyalty. They usually were at least 50 years old and were politically prominent figures. Because they were expected to sway foreign assemblies, envoys were chosen for their oratorical skills. Although such missions were frequent, Greek diplomacy was episodic rather than continuous. Unlike modern ambassadors, heralds and envoys were short-term visitors in the city-states whose policies they sought to influence.

      In marked contrast to diplomatic relations, commercial and other apolitical relations between city-states were conducted on a continuous basis. Greek consular agents, or proxeni, were citizens of the city in which they resided, not of the city-state that employed them. Like envoys, they had a secondary task of gathering information, but their primary responsibility was trade. Although proxeni initially represented one Greek city-state in another, eventually they became far-flung; in his famed work History, Herodotus indicates that there were Greek consuls in Egypt in about 550 BC.

      The Greeks developed archives, a diplomatic vocabulary, principles of international conduct that anticipated international law, and many other elements of modern diplomacy. Their envoys and entourages enjoyed diplomatic immunity for their official correspondence and personal property. Truces, neutrality, commercial conventions, conferences, treaties, and alliances were common. In one 25-year period of the 4th century BC, for example, there were eight Greco-Persian congresses, where even the smallest states had the right to be heard.

      Rome inherited what the Greeks devised and adapted it to the task of imperial administration. As Rome expanded, it often negotiated with representatives of conquered areas, to which it granted partial self-government by way of a treaty. Treaties were made with other states under Greek international law. During the Roman Republic (Roman Republic and Empire) the Senate conducted foreign policy, though a department for foreign affairs was established. Later, under the Empire, the emperor was the ultimate decision maker in foreign affairs. Envoys were received with ceremony and magnificence, and they and their aides were granted immunity.

      Roman envoys were sent abroad with written instructions from their government. Sometimes a messenger, or nuntius, was sent, usually to towns. For larger responsibilities a legatio (embassy) of 10 or 12 legati (ambassadors) was organized under a president. The legati, who were leading citizens chosen for their skill at oratory, were inviolable. Rome also created sophisticated archives, which were staffed by trained archivists. Paleographic (paleography) techniques were developed to decipher and authenticate ancient documents. Other archivists specialized in diplomatic precedents and procedures, which became formalized. For centuries these archive-based activities were the major preoccupation of diplomacy in and around the Roman Empire.

       Roman law, which stressed the sanctity of contracts, became the basis of treaties. Late in the Republican era, the laws applied by the Romans to foreigners and to foreign envoys were merged with the Greek concept of natural law, an ideal code applying to all people, to create a “law of nations.” The sanctity of treaties and the law of nations were absorbed by the Roman Catholic church and preserved in the centuries after the Western Roman Empire collapsed, and a foundation was thus provided for the more sophisticated doctrines of international law that began to emerge along with the European nation-state a millennium later.

      When the Western Empire disintegrated in the 5th century AD, most of its diplomatic traditions disappeared. However, even as monarchs negotiated directly with nearby rulers or at a distance through envoys from the 5th through the 9th century, the papacy continued to use legati. Both forms of diplomacy intensified in the next three centuries. Moreover, the eastern half of the Roman Empire continued for nearly 1,000 years as the Byzantine Empire. Its court at Constantinople, to which the papacy sent envoys from the mid-5th century, had a department of foreign affairs and a bureau to deal with foreign envoys. Aiming to awe and intimidate foreign envoys, Byzantium's rulers marked the arrival of diplomats with spectacular ceremonies calculated to suggest greater power than the empire actually possessed.

      Inspired by their religious faith, followers of Islam (Islām) in Arabia conquered significant territory beginning in the 7th century, first by taking Byzantium's southern and North African provinces and then by uniting Arabs, Persians, and ultimately Turks and other Central Asian peoples in centuries of occasionally bloody conflict with the Christian Byzantines. The community of Islam aspired to a single human society in which secular institutions such as the state would have no significant role. In such a society there would be political interaction but no requirement for diplomatic missions between one independent ruler and another. Theoretically, since non-Muslim states eventually would accept the message of Islam, the need for diplomatic exchanges between them and the Islamic community also would be purely temporary. In practice, however, diplomatic missions, both to other Muslim states and to non-Muslim states, existed from the time of Muhammad, and early Islamic rulers and jurists developed an elaborate set of protections and rules to facilitate the exchange of emissaries. As Muslims came to dominate vast territories in Africa, Asia, and Europe, the experience of contention with Byzantium shaped Islamic diplomatic tradition along Byzantine lines.

      Byzantium produced the first professional diplomats. They were issued written instructions and were enjoined to be polite, to entertain as lavishly as funds permitted, and to sell Byzantine wares to lower their costs and encourage trade. From the 12th century their role as gatherers of information about conditions in their host states became increasingly vital to the survival of the Byzantine state. As its strength waned, timely intelligence from Byzantine diplomats enabled the emperors to play foreign nations off against each other. Byzantium's use of diplomats as licensed spies and its employment of the information they gathered to devise skillful and subtle policies to compensate for a lack of real power inspired neighbouring peoples (e.g., Arabs, Persians, and Turks) as well as others farther away in Rome and the Italian city-states. After the Byzantine Empire's collapse, major elements of its diplomatic tradition lived on in the Ottoman Empire and in Renaissance Italy.

Diplomacy of the Roman Catholic (Roman Catholicism) church
      As Byzantium crumbled, the West revived. Indeed, even in its period of greatest weakness, the Roman Catholic church conducted an active diplomacy, especially at Constantinople and in its 13th-century struggle against the Holy Roman emperors. Popes (papacy) served as arbiters, and papal legates (legate) served as peacemakers. The prestige of the church was such that at every court papal emissaries took precedence over secular envoys, a tradition that continues in countries where Roman Catholicism is the official religion. The Roman emphasis on the sanctity of legates became part of canon law, and church lawyers developed increasingly elaborate rules governing the status, privileges, and conduct of papal envoys, rules that were adapted later for secular use. Still later, rules devised for late medieval church councils provided guidelines for modern international conferences.

      From the 6th century, both legates and (lesser-ranking) nuncii (messengers) carried letters of credence to assure the rulers to whom they were accredited of the extent of their authority as agents of the pope, a practice later adopted for lay envoys. A nuncius (nuncio) (English: nuncio) was a messenger who represented and acted legally for the pope; nuncii could negotiate draft agreements but could not commit the pope without referral. In time, the terms legate and nuncius came to be used for the diplomatic representatives of secular rulers as well as the pope. By the 12th century the secular use of nuncii as diplomatic agents was commonplace.

      When diplomacy was confined to nearby states and meetings of rulers were easily arranged, a visiting messenger such as the nuncius sufficed. However, as trade revived, negotiations at a distance became increasingly common. Envoys no longer could refer the details of negotiations to their masters on a timely basis. They therefore needed the discretionary authority to decide matters on their own. To meet this need, in the 12th century the concept of a procurator with plena potens (full powers) was revived from Roman civil law. This plenipotentiary could negotiate and conclude an agreement, but, unlike a nuncius, he could not represent his principal ceremonially. As a result, one emissary was often given both offices.

      At the end of the 12th century, the term ambassador appeared, initially in Italy. Derived from the medieval Latin ambactiare, meaning “to go on a mission,” the term was used to describe various envoys, some of whom were not agents of sovereigns. Common in both Italy and France in the 13th century, it first appeared in English in 1374 in Troilus and Criseyde by Geoffrey Chaucer (Chaucer, Geoffrey). By the late 15th century, the envoys of secular rulers were commonly called ambassadors, though the papacy continued to send legates and nuncii. Each ambassador carried a letter of credence, though he could not commit his principal unless granted plenipotentiary authority.

      The Crusades and the revival of trade (international trade) increased Europe's contact with the eastern Mediterranean and West Asia. Venice's location afforded that leading Italian city-state early ties with Constantinople, from which it absorbed major elements of the Byzantine diplomatic system. On the basis of Byzantine precedents, Venice gave its envoys written instructions, a practice otherwise unknown in the West, and established a systematic archive. (The Venetian archives contain a registry of all diplomatic documents from 883.) Venice later developed an extensive diplomacy on the Byzantine model, which emphasized the reporting of conditions in the host country. Initially, returning Venetian envoys presented their relazione (final report) orally, but, beginning in the 15th century, such reports were presented in writing. Other Italian city-states, followed by France and Spain, copied Venetian diplomatic methods and style.

The Renaissance to 1815
The development of Italian (Italy) diplomacy
      It is unclear which Italian city-state had the first permanent envoy. In the late Middle Ages and early Renaissance period, most embassies were temporary, lasting from three months to two years. As early as the late 14th and early 15th centuries, however, Venice, Milan, and Mantua sent resident envoys to each other, to the popes, and to the Holy Roman emperors. At this time, envoys generally did not travel with their wives (who were assumed to be indiscreet), but their missions usually employed cooks for purposes of hospitality and to avoid being poisoned. Resident embassies became the norm in Italy in the late 15th century, and after 1500 the practice spread northward. A permanent Milanese envoy to the French court of Louis XI arrived in 1463 and was later joined by a Venetian representative. Ambassadors served a variety of roles, including reporting events to their government and negotiating with their hosts. In addition, they absorbed the role of commercial consuls, who were not then diplomatic agents.

      Italy's early economic revival, geographic location, and small size fostered the creation of a European state system in microcosm. As the peninsula was fully organized into states, wars were frequent, and the maintenance of an equilibrium (“balance of power (power, balance of)”) necessitated constant diplomatic interaction. Whereas meetings of rulers aroused expectations and were considered risky, unobtrusive diplomacy by resident envoys was deemed safer and more effective. Thus, the system of permanent agents took root, with members of the upper middle class or younger sons of great families serving as envoys.

       Rome became the centre of Italian diplomacy and of intrigue, information gathering, and spying. Popes received ambassadors but did not send them. The papal court had the first organized diplomatic corps: the popes addressed the envoys jointly, seated them as a group for ceremonies, and established rules for their collective governance.

      As resident missions became the norm, ceremonial and social occasions came to dominate the relations between diplomats and their hosts, especially because the dignity of the sovereign being represented was at stake. Papal envoys took precedence over those of temporal rulers. Beyond that there was little agreement on the relative status of envoys, and there was frequent strife. Pope Julius II established a list of precedence in 1504, but this did not solve the problem. Spain did not accept inferiority to France; power fluctuated among the states; papal power declined; and the Protestant revolt complicated matters—not least regarding the pope's own position. By the 16th century the title of ambassador was being used only for envoys of crowned heads and the republic of Venice. Latin remained the international language of diplomacy.

      The French invasion of 1494 confronted the Italian states with intervention by a power greater than any within their own state system. They were driven to substitute subtle diplomacy and expedient, if short-lived, compromise for the force they lacked. This tendency, plus their enthusiasm for diplomatic nuances and the 16th-century writings of Niccolò Machiavelli (Machiavelli, Niccolò), gave Italian diplomacy a reputation for being devious. But it was no more so than that of other states, and Machiavelli, himself a Florentine diplomat, argued that an envoy needed integrity, reliability, and honesty, along with tact and skill in the use of occasional equivocation and selective abridgment of aspects of the truth unfavourable to his cause—views seconded since by virtually every authority.

The spread of the Italian diplomatic system
      The 16th-century wars in Italy, the emergence of strong states north of the Alps, and the Protestant revolt ended the Italian Renaissance but spread the Italian system of diplomacy. Henry VII of England was among the first to adopt the Italian diplomatic system, and he initially even used Italian envoys. By the 1520s Thomas Cardinal Wolsey (Wolsey, Thomas, Cardinal), Henry VIII's chancellor, had created an English diplomatic service. Under Francis I, France adopted the Italian system in the 1520s and had a corps of resident envoys by the 1530s, when the title of “envoy extraordinary” gained currency, originally for special ceremonial missions.

      In the 16th and early 17th centuries, bureaucracies scarcely existed. Courtiers initially filled this role, but, by the middle of the 16th century, royal secretaries had taken charge of foreign affairs amid their other duties. Envoys remained personal emissaries of one ruler to another. Because they were highly trusted and communications were slow, ambassadors enjoyed considerable freedom of action. Their task was complicated by the ongoing religious wars, which generated distrust, narrowed contacts, and jeopardized the reporting that was essential before newspapers were widespread.

      The religious wars of the early 17th century were an Austro-French power struggle. During the Thirty Years' War, innovations occurred in the theory and practice of international relations. In 1625 the Dutch jurist Hugo Grotius (Grotius, Hugo) published De Jure Belli ac Pacis (On the Law of War and Peace), in which the laws of war were most numerous. Grotius deplored the strife of the era, which had undermined the traditional props of customary and canon law. In an effort to convert the law of nations into a law among nations and to provide it with a new secular rationale acceptable to both sides in the religious quarrel, Grotius fell back on the classical view of natural law and the rule of reason. His book—considered the first definitive work of international law despite its debt to earlier scholars—enunciated the concepts of state sovereignty and the equality of sovereign states, both basic to the modern diplomatic system.

The development of the foreign ministry and embassies
      The first modern foreign ministry was established in 1626 in France by Cardinal Richelieu (Richelieu, Armand-Jean du Plessis, cardinal et duc de). Richelieu saw diplomacy as a continuous process of negotiation, arguing that a diplomat should have one master and one policy. He created the Ministry of External Affairs to centralize policy and to ensure his control of envoys as he pursued the raison d'état (national interest). Richelieu rejected the view that policy should be based on dynastic or sentimental concerns or a ruler's wishes, holding instead that the state transcended crown and land, prince and people, and had interests and needs independent of all these elements. He asserted that the art of government lay in recognizing these interests and acting according to them, regardless of ethical or religious considerations. In this, Richelieu enunciated principles that leaders throughout the world now accept as axioms of statecraft.

      Richelieu's practice of raison d'état led him to ally Roman Catholic France with the Protestant powers (equally pursuing raison d'état) in the Thirty Years' War against France's great rival, Austria. He largely succeeded, for the Peace of Westphalia (Westphalia, Peace of) of 1648 weakened Austria and enhanced French power. The four years of meetings before its signature were the first great international congresses of modern history. Princes attended, but diplomats did most of the work in secret meetings, especially because by this time there was a corps of experienced diplomats who were mutually well acquainted. However, the task of the diplomats was complicated by the need for two simultaneous congresses, because the problem of precedence was otherwise insoluble.

      The Treaty of Westphalia did not solve precedence disputes, which reflected rivalry between states. The war between France and Spain, which continued from 1648 to 1659, was partly about this issue. Shortly thereafter, in 1661, there was a diplomatic dispute in London concerning whether the French ambassador's carriage would precede that of his Spanish rival. War was narrowly averted, but questions of precedence continued to bedevil European diplomacy. As larger states emerged after the Thirty Years' War, a network of embassies and legations crisscrossed Europe.

      To communicate securely with its own installations, England established the first modern courier service in 1641, and several states used ciphers (cipher). A wide variety of people had been employed as ambassadors, ministers, or residents (a more economical envoy usually reserved for lesser tasks). The glittering court of Louis XIV late in the 17th century transformed this situation dramatically. Because a king's honour at such a court required that his emissaries be well-born, aristocratic envoys became common, not least because of the expense involved. Also, as kings became better established, nobles were more willing to serve them. Thus, diplomacy became a profession dominated by the aristocracy. Another result of Louis XIV's preeminence was that French became the language of diplomacy, superseding Latin. French continued as the lingua franca of diplomacy until the 20th century.

      Louis XIV personally directed French foreign policy and read the dispatches of his ambassadors himself. The foreign minister belonged to the Council of State and directed a small ministry and a sizable diplomatic corps under the king's supervision. Envoys were assigned for three or four years and given letters of credence, instructions, and ciphers for secret correspondence. Because ambassadors chose and paid for their own staff, they were required to have great wealth. Louis XIV's frequent wars concluded in peace congresses, which were attended by diplomats. To counter the cost of the king's wars, the French foreign minister stressed commerce and commercial diplomacy.

      Some states regularized the position of consuls (consul) as state officials, though they were not considered diplomats. The French system was imitated in the 18th century as other major states established foreign ministries. The ambassadors they sent forth were true plenipotentiaries, able to conclude treaties on their own authority. The title of ambassador was used only for the envoys of kings (and for those from Venice). The diplomacy of the time recognized the existence of great powers by according special rank and responsibility to the representatives of these countries. New among these was Russia, which entered European diplomacy in the 18th century. Its diplomatic tradition married elements derived directly from Byzantium to the now essentially mature diplomatic system that had arisen in western Europe.

      At the century's end an independent power of the second rank appeared outside Europe: the United States. The founders of American diplomacy—people such as Benjamin Franklin (Franklin, Benjamin) and Thomas Jefferson (Jefferson, Thomas)—accepted the norms of European diplomacy but declined to wear court dress or to adopt usages they considered unrepublican. To this day, U.S. ambassadors, unlike those of other countries, are addressed not as “Your Excellency” but simply as “Mr. Ambassador.”

      By the 18th century diplomacy had begun to generate a sizable literature, written mostly by its practitioners. Most of these authors argued that to be effective, ambassadors needed to exercise intelligence, trustworthiness, humaneness, foresight, courage, a sense of humour, and sternness (if only to compensate for the not-infrequent lack of these qualities in the national leaders in whose names they acted). One of the earliest such writers, the Dutch diplomat Abraham de Wicquefort, in 1679 termed an envoy “an honourable spy” and “a messenger of peace” who should be charming, silent, and indirect, though, he asserted, deceit was invariably counterproductive. The French diplomat François de Callières (Callières, François de), who wrote a manual of diplomacy in 1716 that is still read and regarded by diplomats as a classic, argued in favour of the professionalization of diplomacy, declaring that “even in those cases where success has attended the efforts of an amateur diplomatist, the example must be regarded as an exception, for it is a commonplace of human experience that skilled work requires a skilled workman.” By 1737 another French diplomat-theorist, Antoine Pecquet, had declared diplomacy to be a sacred calling requiring discretion, patience, accurate reporting, and absolute honesty, themes that have been repeated through succeeding centuries.

The Concert of Europe to the outbreak of World War I
Balance of power and the Concert of Europe
      Through the many wars and peace congresses of the 18th century, European diplomacy strove to maintain a balance between five great powers: Britain, France, Austria, Russia, and Prussia. At the century's end, however, the French Revolution, France's efforts to export it, and the attempts of Napoleon I to conquer Europe first unbalanced and then overthrew the continent's state system. After Napoleon's defeat, the Congress of Vienna (Vienna, Congress of) was convened in 1814–15 to set new boundaries, re-create the balance of power, and guard against future French hegemony. It also dealt with international problems internationally, taking up issues such as rivers, the slave trade, and the rules of diplomacy. The Final Act of Vienna of 1815, as amended at the Congress of Aix-la-Chapelle (Aix-la-Chapelle, Congress of) (Aachen) in 1818, established four classes of heads of diplomatic missions—precedence within each class being determined by the date of presentation of credentials—and a system for signing treaties in French alphabetical order by country name. Thus ended the battles over precedence. Unwritten rules also were established. At Vienna, for example, a distinction was made between great powers and “powers with limited interests.” Only great powers exchanged ambassadors. Until 1893 the United States had no ambassadors; like those of other lesser states, its envoys were only ministers.

      More unwritten rules were soon developed. Napoleon's return and second defeat required a new peace treaty with France at Paris in November 1815. On that occasion the four great victors (Britain, Austria, Russia, and Prussia) formally signed the Quadruple Alliance, which called for periodic meetings of the signatories to consult on common interests, to ensure the “repose and prosperity of the Nations,” and to maintain the peace of Europe. This clause, which created a Concert of Europe (Europe, Concert of), entailed cooperation and restraint as well as a tacit code: the great powers would make all important decisions; internal changes in any member of the Concert had to be sanctioned by the great powers; the great powers were not to challenge each other; and the Concert would decide all disputes. The Concert thus constituted a rudimentary system of international governance by a consortium of great powers.

      Initially, meetings of the Concert were attended by rulers, chancellors, and foreign ministers. The first meeting, which was held at Aix-la-Chapelle in 1818, resulted in the admittance of France to the Concert and the secret renewal of the Quadruple Alliance against it. The meeting also refined diplomatic rules and tackled other international questions. Aix was the first international congress held in peacetime and the first to attract coverage by the press, relations with whom were conducted by the secretary-general of the congress. Thus was born the public relations aspect of diplomacy and the press communiqué.

      Thereafter, congresses met in response to crises. Owing to disputes between the powers, after 1822 the meetings ceased, though the Concert of Europe itself continued unobtrusively. Beginning in 1816 an ambassadorial conference was established in Paris to address issues arising from the 1815 treaty with France. Other conferences of ambassadors followed—usually in London, Vienna, or Paris—to address specific international problems and to sanction change when it seemed advisable or unavoidable. Diplomats continued to adjust and amend the European system with conferences, ranging from the meeting held in London in 1830 that endorsed Belgian independence to the meeting in 1912–13, also held in London, to resolve the Balkan Wars. The Concert was stretched and then disregarded altogether between 1854 and 1870, during the Crimean War and the unifications of Italy and Germany. The century during which it existed (1815–1914) was generally peaceful, marred only by short, limited wars; the bloodshed of one of these wars, the second war of Italian independence, inspired the creation in the 1860s of the International Committee for the Relief of the Wounded (later the International Red Cross (Red Cross and Red Crescent)) as an international nongovernmental agency.

Conference diplomacy and the impact of democratization
      After three decades Europe reverted to conference diplomacy at the foreign ministerial level. The Congress of Paris (Paris, Treaty of) of 1856 not only ended the Crimean War but also resulted in the codification of a significant amount of international law. As European powers extended their sway throughout the world, colonies and spheres of influence (sphere of influence) in areas remote from Europe came increasingly to preoccupy their diplomacy. Conferences in Berlin (Berlin, Congress of) in 1878 and 1884–85 prevented conflagrations over the so-called “Eastern” and “African” questions—euphemisms, respectively, for intervention on behalf of Christian interests in the decaying Ottoman Empire and the carving up of Africa into European-ruled colonies. Furthermore, multilateral diplomacy was institutionalized in a permanent form. The Paris Congress created an International Commission of the Danube to match Vienna's 1815 Commission of the Rhine and established the Universal Telegraph Union (later the International Telecommunication Union). In 1874 the General Postal Union (later the Universal Postal Union) was established. Afterward, specialized agencies like these proliferated. The peace conferences at The Hague (Hague Convention) (1899–1907), which resulted in conventions aimed at codifying the laws of war and encouraging disarmament, were harbingers of the future.

      During the 19th century the world underwent a series of political transformations, and diplomacy changed with it. In Europe power shifted from royal courts to cabinets (cabinet). Kings were replaced by ministers at international meetings, and foreign policy became a matter of increasingly democratized politics. This, plus mass literacy and the advent of inexpensive newspapers, made foreign policy and diplomacy concerns of public opinion. Domestic politics thus gained increasing influence over European foreign policy making.

      Meanwhile, European culture and its diplomatic norms spread throughout the world. Most Latin American (Latin America, history of) colonies became independent, which increased the number of sovereign states. With their European heritage, Latin American countries adopted the existing system without question, as the United States had done earlier. The British Empire, through the East India Company, gnawed away at the Mughal Dynasty and India's many independent states and principalities and then united all of the subcontinent for the first time under a single sovereignty. In the middle of the 19th century, an American naval flotilla forced Japan to open its society to the rest of the world. Afterward, Japan embarked on a rapid program of modernization based on the wholesale adoption of Western norms of political and economic behaviour, including European notions of sovereignty and diplomatic practice.

The spread of European diplomatic norms
      In the late 18th and early 19th centuries, European emissaries to China faced demands to prostrate themselves (“ kowtow”) to the Chinese emperor in order to be formally received by him in Beijing, a humiliating practice that Europeans had not encountered since the era of Byzantium. As plenipotentiary representatives of foreign sovereigns, they viewed it as completely inconsistent with the Westphalian concept of sovereign equality. The Chinese, for their part, neither understanding nor accepting diplomatic concepts and practices elaborated in Europe, were vexed and insulted by the incivility of Western representatives unwilling to respect the long-established ceremonial requirements of the Chinese court. In the ensuing argument between Western and Chinese concepts of diplomatic protocol, Europeans prevailed by force of arms. In 1860 British and French forces sacked and pillaged the emperor's summer palace and some areas around Beijing. They refused to withdraw until the Chinese court had agreed to receive ambassadors on terms consistent with Western practices and to make other concessions. This was merely one of several Western military interventions undertaken to force Chinese acceptance of Western-dictated terms of engagement with the outside world.

      Western diplomacy beyond Europe initially was conducted at a leisurely pace, given the vastly greater distances and times required for communication. For non-European countries such as the United States, this was an unavoidable reality, but, for the European great powers, it was a novelty. Fortunately, the dispatch of far-flung legations developed almost simultaneously with advances in transportation and communications, which made frequent contact possible. The railway, the telegraph, the steamship, and undersea cable sped the transmittal of instructions and information. Although the days of Viscount Robert Stewart Castlereagh (Castlereagh, Robert Stewart, Viscount)—who as British foreign secretary negotiated for months at the Congress of Vienna almost without communication with the cabinet in London—were over, the ambassador's role was more changed than reduced. Lacking instructions and fearing mistakes, earlier emissaries had often done nothing. Similarly, capitals often felt poorly informed about developments of interest to them. (At the dawn of the 19th century, U.S. President Thomas Jefferson famously instructed his secretary of state: “We have heard nothing from our ambassador in Spain for two years. If we do not hear from him this year, let us write him a letter.”) Improvements in technology now made referral to the capital possible and ensured that capitals heard from their envoys abroad, even in the most distant places, on a more frequent and timely basis. Cabinets consulted the ambassador as their “man on the spot” who knew and understood the local conditions, politics, and leaders.

      Speedier communication, more involvement in commercial diplomacy as trade became crucial to prosperity, and, especially, the advent of typewriters and mimeograph machines all contributed to a significant increase in the number of diplomatic reports. Yet diplomacy remained a relatively gilded and leisurely profession, one that the British author Harold Nicolson (Nicolson, Sir Harold) was able to take up shortly before World War I in order to give himself time to write books. It also remained a relatively small profession despite the advent of newcomers. Before 1914 there were 14 missions in Washington, D.C.; by the beginning of the 21st century, the number of missions had increased more than 12-fold. Diplomats were gentlemen who knew each other and shared a similar education, ideology, and culture. They saw themselves as an elite and carefully upheld the fiction that they still were personal envoys of one monarch to another.

Diplomacy since World War I
       World War I accelerated many changes in diplomacy. Sparked by the world war, the Russian Revolution of 1917 produced a great power regime that rejected the views of the Western world and that used political language—including the terms democracy, propaganda, and subversion—in new ways. The communist government of the new Soviet Union abolished diplomatic ranks and published the secret treaties it found in the czarist archives. In so doing it sought not only to contrive a dramatic contrast to the aristocratic traditions of European diplomacy but also to discredit the cozy dealings between rulers that had so often taken place without regard to the interests or views of those they ruled or affected. Without delay the People's Commissariat of Foreign Affairs (known by its Russian acronym, the Narkomindel) organized a press bureau and a bureau for international revolutionary propaganda. As Russia entered peace negotiations with Germany, it substituted propaganda for the power it lacked, appealing openly to the urban workers of other states to exert pressure on their governments. It also established the Communist International (also called the Third International (International, Third)) as a nominally independent entity that meddled in the politics of capitalist countries in ways no embassy could.

The League of Nations and the revival of conference diplomacy
      Despite its risks and inherent complexity, conference diplomacy was revived during World War I and continued afterward, especially during the 1920s. Following the armistice that ended the war, the Paris Peace Conference took place amid much publicity, which was intensified by the newsreels made of the event. United States President Woodrow Wilson (Wilson, Woodrow) had enunciated his peace program (Fourteen Points) in January 1918, including “open covenants of peace openly arrived at” as a major goal for diplomacy in the post-World War I period. His phrasemaking, which entangled process and result, caused confusion. Hundreds of journalists went to the conference (Paris Peace Conference) only to discover that all but the plenary sessions were closed. Wilson had intended that the results of diplomatic negotiations be made public, with treaties published and approved by legislatures. He largely achieved this goal, as the Covenant of the League of Nations (Nations, League of)—one of the key treaties set out for signature at Versailles at the end of the Paris conference—required that treaties be registered at the League before they became binding.

      The Paris conference adopted many of the Congress of Vienna's procedures, including the differentiation of “powers with general interests” and “powers with special interests,” private meetings of heads of great-power delegations, and the convening of a Conference of Ambassadors afterward in Paris. The peace conference, the treaties, and the later conferences were conducted bilingually in English and French after the United States joined Britain in world councils. As at Vienna, political leaders attended, but kings and princes were strikingly absent in an era of cabinet government and widening electorates. Even more than at Vienna, nongovernmental organizations, most representing national entities seeking independence, sought a hearing at the court of the great powers. Ultimately, some European peoples gained independence, which resulted in an increase in the number of sovereign states.

      The chief innovation of the peace negotiations was the creation of the League of Nations as the first permanent major international organization, with a secretariat of international civil servants. The League introduced parliamentary diplomacy in a two-chamber body, acknowledging the equality of states in its lower house and the supremacy of great powers in its upper one. As neither chamber had much power, however, the sovereignty of members was not infringed. The League of Nations sponsored conferences—especially on economic questions and disarmament—and supervised specialized agencies (e.g., the Universal Postal Union). New specialized agencies were established to handle new areas of diplomacy. The International Labour Organization addressed domestic issues and included nongovernmental representatives, and the Mandates Commission exercised slight supervision over colonies of the defeated powers, which had been distributed to the victors technically as mandates (mandate) of the League.

      Despite the presence of a Latin American bloc and a few independent or quasi-independent states of Africa and Asia, the League of Nations was a European club. Diplomats became orators again in the halls of Geneva, but the topics of parliamentary diplomacy were often trivial. Decisions taken in public were rehearsed in secret sessions. On important matters foreign ministers attending League councils met privately in hotel rooms. In 1923 the League revealed its impotence by dodging action in the Corfu crisis, in which Italian troops occupied the Greek island following the murder of an Italian general on Greek soil. In later years the League failed to improve its record in dealing with international crises.

      The weakness of the League of Nations was aggravated by the absence of the United States, whose Senate refused to ratify the peace treaties by which the League was created. The Senate's inaction raised questions about the country's reliability—the basis of effective diplomacy—and drew attention to the blurring of the line between foreign and domestic policy and, in the view of some, the irresponsibility of democratic electorates. The public conceived of diplomacy as a kind of athletic contest, cheering its side and booing the opponents, seeking great victories and humiliation of the foe, and fixing on the next score and not on the long term. This attitude rendered good diplomacy—which is based on compromise, mutual advantage, and lasting interests—extremely difficult.

      In Europe, where electorates were constantly preoccupied with foreign policy, this problem was most acute. Statesmen, trailed by the popular press, engaged in personal diplomacy at frequent conferences. Foreign offices, diplomats, and quiet negotiation were eclipsed as prime ministers and their staffs executed policy in a blaze of publicity. Governments, led by Britain and Germany, manipulated this publicity to influence public opinion in favour of their policies. As the masses became concerned with such matters, unprecedented steps were taken to bribe the foreign press, to plant stories, and to use public occasions for propaganda speeches aimed at foreign audiences. Because public opinion set the parameters in which foreign policy operated in democratic societies, these efforts had an effect.

      Despite these changes, the “new diplomacy” of the early 20th century was, in fact, not so new. For all the oratory at Geneva, the summits of the 1920s, and the specialized conferences and agencies, the negotiating process remained the same. Talks continued to be held in secret, and usually only their results were announced to the public. Meanwhile, diplomats deplored the decline of elite influence and the effects of expanded democracy—e.g., press scrutiny, public attention, and the involvement of politicians—on the diplomatic process.

      Diplomacy was equally affected by the advent of totalitarian regimes with strong ideologies; more often than not, these regimes honoured established diplomatic rules only when it suited them, and they generally eschewed negotiation and compromise. The government of the Soviet Union, for example, viewed all capitalist states as enemies. Especially under the leadership of Joseph Stalin (Stalin, Joseph), it used each concession it won as a basis to press for another, and it viewed diplomacy as war, not as a process of mutual compromise. Nazi (Nazi Party) Germany under Adolf Hitler (Hitler, Adolf) was equally indifferent to accommodation and Western opinion once it achieved rearmament; Hitler signed treaties with the intention of keeping them only as long as the terms suited him, regarded with contempt those who tried to accommodate him, and cowed foreign leaders with tantrums and threats.

Summit diplomacy
      After a lull the tensions of the 1930s revived conference diplomacy, which continued during World War II. Thereafter, summit meetings between heads of government became the norm as technology again quickened the tempo of diplomacy. In the 1930s statesmen began to telephone each other, a practice that was epitomized in the 1960s by the Soviet-American “hot line.” Similarly, the flights of British Prime Minister Neville Chamberlain (Chamberlain, Neville) to Germany in 1938, which resulted in the Munich agreement that allowed Germany to annex the Sudetenland in western Czechoslovakia, started a trend in diplomacy. With airplanes at their disposal, leaders met often in the postwar world. As Kojo Debrah, a Ghanaian diplomat, later remarked, “Radio enables people to hear all evil, television enables them to see all evil, and the jet plane enables them to go off and do all evil.”

Decolonization and the beginnings of the Cold War
      After World War II the world divided into two tight blocs, one dominated by the United States and one by the Soviet Union, with a fragile nonaligned movement (mostly of newly independent countries) lying precariously in between. The Cold War took place under the threat of nuclear catastrophe and gave rise to two major alliances—the North Atlantic Treaty Organization, led by the United States, and the Warsaw Pact, led by the Soviet Union—along with a conventional and nuclear arms race, endless disarmament negotiations, much conference diplomacy, many summits, and periodic crisis management, a form of negotiation aimed at living with a problem, not solving it. As a result, a premium was placed on the diplomatic art of continuing to talk until a crisis ceased to boil.

      World War I had produced a few new states (state) as eastern European empires crumbled. World War II sounded the death knell for global empires. The immediate postwar period saw the reemergence into full independence of several great civilizations that the age of imperialism had placed under generations of European tutelage. These reborn countries had taken to heart the doctrines of European diplomacy. With the zeal of new converts, they were, in many ways, more insistent on the concepts of sovereignty, territorial integrity, and noninterference in internal affairs than their former colonial masters now were.

      After a long struggle for independence, Indians formed two proudly assertive but mutually antagonistic states, India and Pakistan. China's century-long humiliation at the hands of the West exploded in a series of violent revolutions seeking to restore the country to wealth, power, and a place of dignity internationally. In 1949 Mao Zedong proclaimed that, with the founding of his People's Republic of China, the Chinese people had once again “stood up”; but, with U.S. support, Mao's defeated rival in the Chinese civil war, Chiang Kai-shek, continued for two decades to speak for China in the United Nations (UN). The question of China's international representation became one of the great diplomatic issues of the 1950s and '60s. The states and principalities of the Arab world resumed their independence and then insisted, over the objections of their former colonial masters, on exercising full sovereignty throughout their own territories, as Egypt did with respect to the Suez Canal. Anti-imperialist sentiment soon made colonialism globally unacceptable. By the late 1950s and '60s, new states, mainly in Africa, were being established on an almost monthly basis.

The United Nations and the changing world order
      The UN, which replaced the League of Nations in 1946, was founded with 51 members. By the beginning of the 21st century, its membership had nearly quadrupled, though not all the world's countries had joined. The new states were often undeveloped and technologically weak, with a limited pool of educated elites for the establishment of a modern diplomatic corps. After the larger colonies gained independence, smaller ones, where this problem was more acute, followed suit. The trend continued until even “microstates” of small area and population became sovereign. (For example, at its independence in 1968, Nauru had a population of fewer than 7,000.)

      These small new states, which achieved independence suddenly, were unable to conduct much diplomacy at first. Many of them accredited ambassadors only to the former colonial power, a key neighbouring state, and the UN. For financial reasons envoys often were sent only to the European Community (EC), the Commonwealth Secretariat, the Organization of Petroleum Exporting Countries (OPEC) (OPEC), or major powers that might extend military and financial assistance. Over time, the larger of the newly independent states built sizable foreign services modeled on that of the former colonial power or those of the similarly organized services of Brazil and India, which were not complicit in colonialism. (The Brazilian foreign ministry and diplomatic service are organized and staffed along European lines; they have long had reputations as the most professional such organizations in Latin America. The Indian Foreign Service, modeled on the highly respected Indian Administrative Service and initially staffed from its ranks, quickly emerged as a practitioner of competent diplomacy by a nonaligned, non-Western potential great power.) The microstates mounted a few tiny missions and experimented with joint representation and shared facilities, multiple accreditation of one envoy to several capitals, and meeting with foreign envoys in their own capitals. A very few nominally independent states had no foreign ministry and relied on regional powers to represent them.

      The new states shared the diplomatic forms of the industrialized democracies of the West but not their political culture. Many new states were ill at ease with the values of their former colonial masters and cast about for alternatives drawn from their own histories and national experiences. Others accepted Western norms but castigated the West for hypocrisy and challenged it to live up to its own ideals. Envoys began to appear in Western capitals dressed in indigenous regalia to symbolize their assertion of ancient non-Western cultural identities. As they gained a majority at the UN, the newly independent states fundamentally altered the organization's stance toward colonies, racial issues, and indigenous peoples. Beyond the East-West division of the Cold War, there developed a “North-South” divide between the wealthier former imperial powers of the north and their less-developed former colonies, many of which called for a worldwide redistribution of wealth.

      The UN was no more successful at healing the North-South rift than it was at healing the East-West one. It was, according to former Indian permanent representative Arthur Lall, “a forum and not a force.” Useful mainly for its specialized agencies and as a forum for propaganda and a venue for quiet contacts, it played only a marginal role in major questions and conflicts, though secretaries-general and their deputies made intense efforts to solve serious but secondary problems such as the resettlement of refugees and persons displaced by war. In the end, the UN has remained only, as Dag Hammarskjöld (Hammarskjöld, Dag), UN secretary-general from 1953 to 1961, remarked, “a complement to the normal diplomatic machinery of the governments” that are its members, not a substitute.

      Regional organizations sometimes were more successful. The European Union (EU) was effective in promoting trade (international trade) and cooperation with member states, and the Organization of African Unity (African Union) and the Arab League enhanced the international bargaining power of regional groupings of new states by providing a coherent foreign policy and diplomatic strategy. By contrast, the extreme political, economic, and cultural diversity of Asia made it harder to organize effectively; the Organization of American States (American States, Organization of) suffered from the enormous imbalance between the United States and its smaller, poorer, and less-powerful members; and the nonaligned movement was too disparate for long-term cohesion. None of these entities solved the problem of harmonizing the views of the industrialized democracies, the Soviet bloc, and those newly independent countries struggling for wealth, power, and cultural identity.

      The exponential growth in the number of states complicated diplomacy by requiring countries—especially the major powers—to staff many different diplomatic missions at once. As state, transnational, and quasi-diplomatic entities proliferated, so did the functions of diplomacy. Although leaders met often, there was more, not less, for diplomats to do. Thus, the size of the missions of major powers increased enormously, to the point where some U.S. diplomatic missions were three times larger than the foreign ministry of the state to which they were accredited.

      Subnational entities, representing peoples aspiring to statehood or to the creation of radically different regimes in their homelands, also complicated the crowded international scene. Foremost among these entities was the Palestine Liberation Organization (PLO), which had observer status at the UN, membership in the Arab League, and envoys in most of the world's capitals, many with diplomatic status. The African National Congress (ANC) and the South West African People's Organization (South West Africa People's Organization) (SWAPO) also conducted a long and varied diplomacy before achieving power in South Africa and Namibia, respectively.

      New topics of diplomacy also abounded, including economic and military aid, commodity-price stabilization, food sales, aviation, and allocations of radio frequencies. Career diplomats tended to be generalists drawn from foreign ministries, and specialists increasingly came from other agencies as attachés or counselors. Disarmament negotiations, for example, required specialized knowledge beyond the scope of military attachés. Environmental abuse gave rise to a host of topics, such as the law of the sea (Sea, Law of the), global warming, and means of preventing or abating pollution. The complexity of diplomatic missions increased accordingly. By the 1960s, for example, U.S. missions had instituted “country teams,” including the ambassador and the heads of all attached missions, which met at least once each week to unify policy and reporting efforts and to prevent different elements under the ambassador from working at cross-purposes.

      Not only were there new tasks for diplomacy to perform, but there was also a new emphasis on old tasks. The widening Cold War entailed more espionage, of which ambassadors were officially ignorant but which was conducted by attachés and chauffeurs alike; thus, large embassies appeared in small but strategic countries. propaganda, the export of officially sanctioned information, and so-called “cultural diplomacy”—as typified by the international tours of Russian dance companies and the cultural programs of the Alliance Française, the British Council, and various American libraries—expanded as well. Cold War competition also extended to international arms transfers. Gifts or sales of weapons and military training were a means of influencing foreign armed forces and consolidating long-term relationships with key elements of foreign governments. The increasing complexity and expense of modern weapons systems also made military exports essential for preserving industrial capacity and employment in the arms industries of the major powers. Diplomats thus became arms merchants, competing with allies and enemies alike for sales to their host governments.

      The multiplicity of diplomatic tasks reflected a world that was not only more interdependent but also more fragmented and divided. This dangerous combination led to a search for a new international system to manage the Cold War in order to prevent a nuclear holocaust. Neither the UN nor the Western policy of containment provided an answer. As the two blocs congealed, a balance of terror in the 1960s was followed by an era of détente in the 1970s and then by a return to deterrence in the 1980s. But the 45 years of the Cold War did not produce an organizing principle of any duration. Great power conflict was conducted by proxy through client states in developing areas. Wars, which were numerous but small, were not declared, and diplomatic relations often continued during the fighting.

New styles of diplomacy
      One result of the breakdown of old premises, mainly in new states, was that diplomatic immunity was breached, and diplomacy became a hazardous career. Disease was no longer the chief killer of diplomats, nor was overindulgence at court; the new hazards were murder, maiming, and kidnapping. Diplomats were a target because they represented states and symbolized privileged elites. Security precautions at embassies were doubled and redoubled but were never sufficient if host governments turned a blind eye to breaches of extraterritoriality. As the 20th century drew to a close, attacks on diplomatic missions and diplomats grew in scale and frequency. Terrorists (terrorism) succeeded in taking the staffs of some diplomatic missions hostage and in blowing up others, with great loss of life. Some embassies came to resemble fortresses.

      Some new states also adopted the Soviet tactic of offensive behaviour as a tool of policy. The newest “new diplomacy” appealed, as the Soviets had done during the interwar period, over the heads of government to people in the opponent's camp; it tried to discredit governments by attributing ugly motives; and it sometimes trumpeted maximum demands in calculatedly offensive language as conditions for negotiation. Public diplomacy of this ilk was often noisy, bellicose, and self-righteous. The elaborate courtesy of sharply understated, unpublished notes wherein a government “viewed with concern” to convey strong objection was employed by only part of the diplomatic community. The use of derogatory terms such as war criminal, imperialist, neocolonialist, hegemon, racist, and mass murderer not surprisingly proved more likely to enrage than to conciliate those to whom these terms were applied.

      As diplomacy raised its voice in public, propaganda, abetted by technology (communication), became a key tool. Radio Free Europe and the Voice of America broadcast one message to the communist bloc; proselytizing Christian churches and so-called “national liberation movements” capitalized upon transistor radios to spread their messages to other areas. In cities, television became crucial, as images provided an immediacy that words alone could not convey. Statesmen lost no opportunity to be filmed, and ambassadors emerged from the shadows to appear on news programs or before legislative committees to expound their country's policy. Mass demonstrations were staged for the benefit of television and featured banners in English, which had become the most important international language. When the United States invaded Panama in 1989, the Soviet Union protested on the American-owned television company Cable News Network, which was watched by most foreign ministries and world leaders.

      The disagreement on how to conduct diplomacy applied also to who should practice it. In the 1970s the United States, Australia, and some other industrialized democracies (as well as South Africa) broadened recruitment beyond the old elites and emphasized the development of foreign services representative of their populations' ethnic diversity. Others, such as Brazil, France, India, and Japan, continued to recruit self-consciously elite services. China and the Soviet Union continued to emphasize political criteria as well as intellectual skills. Overall, however, embassy positions, from the ambassadorial level down, increasingly were filled by professional diplomats. Only the United States and a handful of other countries continued the practice of appointing wealthy amateurs as ambassadors, treating the most senior diplomatic positions as political spoils to be conferred on financial contributors after each election.

The role of women
      Famous female political leaders such as Cleopatra VII (Cleopatra), Isabella I, and Elizabeth I were enormously influential in the history of diplomatic relations, but historically women largely played a secondary—but substantial—role as the wives of diplomats. Without large fortunes or many servants, diplomatic wives were forced to shoulder greater burdens as they coped with a nomadic lifestyle, housewifery, hectic social schedules, and endless cooking for obligatory entertaining. The strain became so severe that many ambassadors retired early. In response, Japan adopted the practice of paying diplomatic wives a salary to compensate them for the time they spent entertaining. In 1972 the United States stopped evaluating wives in rating their spouses; entertaining and attending functions were no longer required, though they were still expected. Diplomatic wives also increasingly wished to pursue their own careers. Some of these were portable; if not, efforts were made with host countries to permit employment.

      In 1923 the Soviet Union became the first country to name a woman as head of a diplomatic mission. The United States, which began admitting women into the newly established American career service only in 1925, followed a decade later by appointing a woman as minister to Denmark. France permitted a woman to enter its diplomatic service by examination in 1930, though at the time it still did not appoint women as heads of missions.

      After World War II, increasing numbers of women were making a career of diplomacy, and more women became ambassadors, both by political appointment and by career progression. Despite these changes, some countries, particularly in the developing world, continued not to hire women as diplomats, and sending women envoys to them was deemed unwise. In 1970, for example, the Vatican rejected a proposed minister from West Germany because she was female. With these exceptions, however, women became an accepted and rapidly growing minority in the diplomatic, including the ambassadorial, ranks. As the 20th century closed, a number of American women, some accompanied by dependent spouses, were serving as ambassadors in Arab and Islamic countries long considered inhospitable to women.

      Before this trend began, women seemed to face almost insuperable difficulties in combining marriage with the nomadic career of diplomacy. After 1971 the U.S. Foreign Service no longer required women to resign upon marriage, but if the husband's profession was not easily movable, problems arose. These problems were particularly pronounced for “tandem couples,” in which both husband and wife were in the Foreign Service. Since postings together to large embassies or to a department headquarters could not always be arranged, husband and wife often would alternate in taking leave when not posted in adjacent countries. Despite these problems, at the end of the 20th century, the U.S. Foreign Service employed more than 500 tandem couples, including more than one pair serving simultaneously as ambassadors.

The end of bipolarity
      In 1989, when the Cold War sputtered to a close, there were more than 7,000 diplomatic missions worldwide, most of which were embassies and thus headed by ambassadors. Between World War I and World War II, a few lesser states had been allowed to accredit embassies, but when the United States elevated Latin American missions in the 1940s, a trickle became a flood. Soon legations were the exception, and, by the last quarter of the 20th century, they had disappeared. In addition, numerous often highly specialized international organizations and an array of regional entities, some of them supranational, also now received and sent envoys of ambassadorial rank. For example, some states accredited three ambassadors to Brussels: to the Belgian government, to the EU, and to NATO.

      Meanwhile, the already bewildering variety of tasks assigned to overburdened diplomatic missions continued to grow. The emergence of transnational legal issues such as terrorism, organized crime, drug trafficking, international smuggling of immigrants and refugees, and human rights increasingly involved embassies in close liaison with local police and prosecutors. As the 20th century came to an end, however, the number of diplomatic missions maintained by independent states began to decline under the influence of various factors, including budgetary constraints, the growing European practice of joint diplomatic representation by two or more members of the EU in the capitals of foreign states of relatively little interest to Europe, greater willingness to accredit ambassadors simultaneously to several regional states, and diminishing domestic interest in foreign affairs.

      Even as the number of embassies and diplomats devoted to the conduct of bilateral relations contracted, international organizations and conferences attempting to regulate transnational affairs continued to proliferate. Indeed, the number of nongovernmental entities attempting to influence the work of such organizations and conferences grew even more rapidly: churches, the International Red Cross (International Committee of the Red Cross) and similar service and relief organizations, multinational corporations, trade unions, and a host of special interest groups and professional organizations all developed lobbying efforts aimed at advancing specific transnational agendas. By the beginning of the 21st century, there were thousands of nongovernmental organizations accredited as observers to specialized agencies of the UN and other international organizations in Geneva. Negotiations over tariffs, debts, and issues of market access meanwhile assumed steadily greater importance. Efforts to liberalize the terms of private commerce came to involve foreign ministries, ministries of trade, and specialized ambassadors-at-large as well as resident ambassadors and consular officers.

      The end of the Cold War left the foreign relations of many countries without a clear direction. Russia struggled to come to terms with its diminished power and influence, brought about by the political and economic collapse of the former Soviet Union. Deprived of its Soviet enemy and unchallenged as a global power, the United States clung to its alliances but deferred less to its allies and found itself increasingly isolated in international forums. Europe progressed toward greater unity without developing a clear vision of its preferred place in the world, including its relationship with its long-standing American ally. Japan more openly aspired to becoming a “normal nation,” casting off the restrictions on its international role that its defeat in World War II had imposed, but it did little to define or realize this ambition. China and India, which had seen themselves first as victims of European aggression and then as part of a “Third World” between the American and Russian-led blocs, began uneasily to emerge as great powers in their own right, in the process reviving elements of their long-forgotten ancient diplomatic doctrines and traditions.

      The world map itself changed constantly. As the Soviet Union broke up, the Baltic states resumed their independence, and another wave of new states emerged from the retreat of Russian imperialism from Eastern Europe, the Caucasus, and Central Asia. Meanwhile, various multiethnic states (e.g., Yugoslavia) were torn asunder by rampant nationalism. Ethnic minorities, such as Eritreans, achieved self-determination, and civil strife in countries such as Afghanistan, Rwanda, and Somalia resulted in great suffering and huge refugee flows. The need for international intervention to assist the peoples of failed states seemed to increase constantly. In the course of efforts to assign culpability for large-scale human suffering, the walls of sovereign immunity began to be breached. Even current and former heads of state were no longer exempt from the legal process in international and national courts. At the beginning of the 21st century, there was a consensus that a transition in the diplomatic order was occurring, though there was disagreement about what kind of new order would emerge.

Modern diplomatic practice

Diplomatic agents
      In 1961 the UN Conference on Diplomatic Intercourse and Immunities adopted the Vienna Convention on Diplomatic Relations to replace the 19th-century rules of Vienna and Aix. It specifies three classes of heads of mission: (1) ambassadors or nuncios accredited to heads of state and other heads of missions of equivalent rank, (2) envoys, ministers, and internuncios accredited to heads of state, and (3) chargés d'affaires (chargé d'affaires) accredited to ministers of foreign affairs. A chargé d'affaires ad interim is a deputy temporarily acting for an absent head of mission.

      A fourth class established at Aix-la-Chapelle, that of minister-resident, lapsed in the 20th century, but some variations on the other classes were produced during that time. In 1918 Russia's new regime abolished diplomatic ranks. When the Soviet government gained recognition, it accredited “plenipotentiary representatives,” known by the Russian abbreviation as “polpredy” and in English as “plenpots.” Because they lacked precedence under the rules then prevailing, however, the Soviet Union reverted to the previously used titles. The regime of Muammar al-Qaddafi (Qaddafi, Muammar al-) in Libya sends Peoples' Bureaus, which enjoy precedence under the present rules. Members of the Commonwealth accredit high commissioners to each other. Finally, the Vatican (Vatican City) occasionally sends legates on special missions to Roman Catholic (Roman Catholicism) countries and in 1965 began to appoint pro-nuncios. It accredited apostolic nuncios only to those few Roman Catholic states where the papal (papacy) envoy is always the doyen, or dean, of the diplomatic corps; internuncios elsewhere found themselves in the tiny remaining group of ministers. Hence, the title of pro-nuncio was devised to gain entry into the first class.

      Emissaries of the first two classes are usually titled “extraordinary and plenipotentiary,” though they are neither; special full powers are issued to enable an envoy to sign a treaty. Precedence within each class is fixed by the date of presentation of credentials; otherwise, there is no real distinction between them. The senior ambassador by length of service is the doyen (unless the nuncio traditionally holds the post), who convenes and speaks for the local diplomatic corps as needed.

Rights and privileges
      All heads of mission receive the same privileges and immunities, many of which their aides also enjoy. diplomatic immunity began when prehistoric rulers first realized that their messengers to others could not safely convey messages, gather intelligence, or negotiate unless the messengers other rulers sent to them were treated with reciprocal hospitality and dignity. Thus, diplomatic agents and their families are inviolable, not subject to arrest or worse, even in wartime. Their homes are also inviolable, and they are largely outside the criminal and civil law in the host state—even as a witness—though many missions waive some exemptions, especially for parking tickets. In the host state the foreign envoy is free of taxes and military obligations. His personal baggage and household effects are not inspected by the host state or third states crossed in transit, in which he also has immunity.

      The physical property of the mission enjoys immunities and privileges as well. The flag and emblem of the sending state may be displayed on the chancellery and on the residence and vehicles of the head of mission. The mission's archives and official correspondence are inviolable even if relations are severed or war is declared; it is entitled to secure communication with its government and its other missions. The diplomatic bag and couriers are inviolable; wireless facilities are either afforded or installed at the mission with the host state's consent. In their host country diplomats enjoy the freedom to articulate their government's policies, even when these are unwelcome to the ears of their hosts. Direct criticism of their host government, its leading figures, or local society may, however, result in a diplomat's being asked to leave (i.e., being declared persona non grata). By long-standing tradition, in order to maintain an atmosphere conducive to dialogue in its capital, host states generally seek to restrain the use of intemperate or insulting language by one country's diplomatic representatives against another's (the so-called “third-country rule”).

      The head of mission's residence and the chancellery (usually now called the embassy) are extraterritorial (extraterritoriality). The legal fiction is maintained that these premises are part of the sending state's territory, not that of the host state; even local firefighters cannot enter “foreign territory” without consent. For this reason, political opponents of harsh regimes often seek asylum in embassies, legations, and nunciatures. Although widely practiced, the right of political asylum is not established in international law except in Latin America.

      The ultimate security of embassies is universally acknowledged to be the responsibility of the host state. Most states are scrupulous about treating foreign diplomats and their missions as honoured guests who are deserving of protection from intrusions into the premises in which they live and work. Host countries are naturally concerned that reciprocal violations of privileges and immunities might befall their own embassies in foreign lands were they to allow them in their capital. There were, however, some spectacular lapses from the duty of diplomatic protection in the last half of the 20th century in countries in revolutionary turmoil. For example, in 1963, with the unapologetic sympathy of the Indonesian government, mobs sacked the British embassy in Jakarta over the issue of Malaysian independence; in 1967, during the so-called Great Proletarian Cultural Revolution in China, the British embassy in Beijing was invaded and gutted by Red Guards, whose actions were officially condoned; and in 1979 Iranian students stormed the American embassy in Tehrān and, with the open connivance of the government of the newly established Islamic Republic, held many of the staff in the U.S. embassy hostage for 444 days.

Credentials
      Appointment of a new head of mission is a complex process. To avoid embarrassment, his or her name is informally sounded. If the host country does not object, formal application for agrément, or consent, is made by the envoy being replaced. Then the new ambassador is sent forth with a letter of credence addressed by his head of state to the head of the host state to introduce the ambassador as his or her representative. In most major capitals a copy of credentials is now first provided privately to the foreign minister, after which the new ambassador can deal with the foreign ministry and begin to call on his diplomatic colleagues. Presentation of these credentials to the chief of state is, however, quite formal; in some states with a keen sense of tradition, it may entail riding from the embassy to a palace in an open carriage. The ceremony includes handing over the newly arrived ambassador's letters of credence and those of recall of the predecessor and a short platitudinous speech or brief small talk. The date of the formal presentation of credentials determines an ambassador's order of precedence within the local diplomatic corps. Once it has been completed, an ambassador may proceed to business with ministries other than the foreign ministry. At the UN (United Nations), credentials are presented without ceremony to the secretary-general. There is no doyen, because turnover is too rapid; instead, the secretary-general annually draws the name of a country from a box, and precedence occurs alphabetically in English beginning with that country.

      The appointment of consuls (consul) is merely notified; they are entitled to some but not all diplomatic privileges and immunities. They are located in the major cities of the host country, of which a few may be citizens. Most belong to the diplomatic service of the sending state, for consular and diplomatic services have been merged. Consuls issue visas, but their primary functions are fostering commerce and aiding nationals of the sending state who are in difficulty.

Diplomatic tasks
      According to the Vienna Convention, the functions of a diplomatic mission include (1) the representation of the sending state in the host state at a level beyond the merely social and ceremonial; (2) the protection within the host state of the interests of the sending state and its nationals, including their property and shares in firms; (3) the negotiation and signing of agreements with the host state when authorized; (4) the reporting and gathering of information by all lawful means on conditions and developments in the host country for the sending government; and (5) the promotion of friendly relations between the two states and the furthering of their economic, commercial, cultural, and scientific relations. Diplomatic missions also provide public services for their nationals, including acting as a notary public, providing electoral registration, issuing passports and papers for military conscription, referring injured or sick nationals to local physicians and lawyers, and ensuring nondiscriminatory treatment for those charged with or imprisoned for crimes.

      Services to citizens and the local public are provided by junior and consular staff, whereas specialized attachés engage in protection and much promotional activity. The ambassador is charged with carrying out all the tasks of the diplomatic mission through subordinates or through personal intervention with local authorities when necessary. Most ambassadors are now heavily engaged in the promotion of trade and in assisting private companies in commercial disputes. The head of mission, the head's spouse, and the deputy spend much time entertaining visiting politicians and attending receptions—at which some business is conducted and information is collected—but representation also entails lodging official or informal protests with the host government or explaining and defending national policy. A diplomat's most demanding daily activities, however, remain reporting, analyzing, and negotiating.

      Reports are filed by telegram, telephone, facsimile, and e-mail, usually on an encrypted basis to protect the confidentiality of information. (It is now much less common to file reports by a letter or dispatch to be hand-carried in the diplomatic pouch by a courier.) One of the ambassador's key tasks is to predict a developing crisis, a task accomplished through the gathering of information from an array of sources and the use of experience and expert knowledge in identifying, analyzing, and interpreting emerging key issues and patterns and their implications. The ambassador's duty is to advise and warn, and he is expected to brief his government in detail and without distortion about the content of his conversations with the host foreign minister, the prime minister, and other key officials and politicians.

      Beyond these functions, the ambassador negotiates as instructed. Negotiation is a complex process leading to agreement based on compromise, if it reaches agreement at all. (The object of international negotiation is not necessarily to reach agreement; it is to advance the interests in an ambassador's charge.) The topic of negotiation and the timing of initial overtures are set by the ambassador's foreign ministry. The foreign ministry (perhaps with cabinet involvement) also specifies the diplomatic strategy to be used. Usually this is specific to the goals and circumstances. For example, the Marshall Plan, through which the United States provided several western and southern European countries with financial assistance after World War II, was the strategy used by the U.S. to pursue its goals in Europe in 1947. The foreign ministry also establishes broad tactics, often regarding initial demands, bargaining counters, and minimum final position. For the rest the negotiator, either an ambassador or a special envoy, is in most countries free to employ whatever tactics seem best.

      These practices are fairly standard, though bilateral negotiations vary greatly and multilateral ones more so. The parties have common interests to negotiate over and areas of disagreement to negotiate about. There are two basic approaches: tackling issues piece by piece and establishing a framework of agreed principles at the outset. The latter works well, but, if it cannot be done, the piecemeal approach is necessary.

      In most negotiations initial demands far exceed expectations; concessions are as small and as slow as possible, for early concession indicates eagerness and engenders demands for more concessions. There is intermittent testing of the other side's firmness and will for an agreement. There may be indirection, lulling of the other party, and bluffing to gain an edge, though it is important for diplomats not to be caught bluffing. Lying in diplomatic negotiations is considered a mistake, but stretching or abridging the truth is permissible. Coercive diplomacy involving the threat of force is risky but cheaper than war; other coercive pressures may include the setting of conditions for concessions, such as debt rescheduling. Compensations to sweeten the offer, warnings, and threats speed agreement if well timed, as do deadlines, whether agreed, imposed by external events, or contained in ultimatums.

      Negotiations vary according to whether the negotiating states are friends or foes, whether they are of similar or disparate power, whether they genuinely want agreement or are negotiating only for propaganda purposes or to avoid condemnation for refusing to negotiate, and whether their aim is to prolong an existing agreement or to change the status quo, perhaps redistributing benefits or ending hostilities. Some of the most difficult negotiations plow new ground, as do those that create new cooperative or regulatory institutions, such as the International Sea-Bed Authority (International Seabed Authority), and those that transfer authority, such as the 1984 Sino-British agreement by which Chinese sovereignty over Hong Kong was restored in 1997.

      Whatever the problem, the diplomatic negotiator must display reliability and credibility. He tries to create trust and to seem both honest and fair. He must strive to understand the other side's concerns. Stamina, precision, clarity, courage, patience, and an even temper are necessary, though calculated impatience or anger may be used as a tactic. A skilled negotiator has a sense of timing, knowing when to use threats, warnings, or concessions. Sometimes a third party is discreetly used to facilitate initial contact or to press the sides toward agreement. The negotiator must be persuasive, flexible, tenacious, and creative in devising new solutions or reframing issues from a new angle to convince the other party that agreement is in its interest. Smaller and easier issues are tackled first, building an area of agreement, which is then stressed to create a stake in success, whereas harder issues are postponed and played down. Through a process of proposal and counterproposal, inducement and pressure, the diplomat keeps talking and, in the last analysis, proceeds by trial and error.

      Multilateral negotiations demand the same skills but are more complex. The process is usually protracted and fragmented, with subsidiary negotiations in small groups and occasional cooling-off periods. Skillful representatives of small states often play important roles. For example, American-led negotiations to end South African colonial rule in Namibia were significantly aided by Martti Ahtisaari (Ahtisaari, Martti), a notably able Finnish diplomat acting on behalf of the UN. During Ahtisaari's term as president of Finland (1994–2000), he also helped bring about a peace settlement in Kosovo. The principal intermediary with the Iraqi government in an effort to secure the release of Western hostages during the Persian Gulf War (1990–91) was the UN's Kofi Annan (Annan, Kofi), a highly regarded career diplomat from Ghana who would later win the Nobel Prize for Peace as secretary-general of the UN. Decisions are reached by unanimity, majority, or consensus (to avoid voting). For simplicity, changes are often made to apply across the board, as with tariff cuts.

      Iraq's refusal to end its occupation of Kuwait peacefully in 1990 and the failure of Israel and the Palestinians from the mid-1990s to reach a negotiated settlement of their disputes are sad reminders that when negotiations fail, the consequences can be bloody. In the end, war, not words, remains the ultimate argument of the state. What cannot be decided by dialogue over a negotiating table is often left to be decided on the battlefield or in civil conflict.

Diplomatic agreements
      If a negotiation succeeds, the result is embodied in an international instrument, of which there are several types. The most solemn is a treaty, a written agreement between states that is binding on the parties under international law and analogous to a contract in civil law. Treaties are registered at the UN and may be bilateral or multilateral; international organizations also conclude treaties both with individual states and with each other.

      A convention is a multilateral instrument of a lawmaking, codifying, or regulatory nature. Conventions are usually negotiated under the auspices of international entities or a conference of states. The UN and its agencies negotiate many conventions, as does the Council of Europe (Europe, Council of). Treaties and conventions require ratification, an executive act of final approval. In democratic countries parliamentary approval is deemed advisable for important treaties. In the United States the Senate must consent by a two-thirds vote. Elsewhere, legislative involvement is less drastic but has increased since World War II. In Britain treaties lie on the table of the House of Commons for 21 days before ratification; other countries have similar requirements. For bilateral treaties ratifications are exchanged; otherwise, they are deposited in a place named in the text, and the treaty takes effect when the specified number of ratifications have been received.

      Agreements are usually bilateral, not multilateral. Less formal and permanent than treaties, they deal with narrow, often technical topics. They are negotiated between governments or government departments, though sometimes nongovernmental entities are involved, as banks are in debt-rescheduling agreements. The United States has long used executive agreements (executive agreement) to preserve secrecy and circumvent the ratification process.

      A protocol prolongs, amends, supplements, or supersedes an existing instrument. It may contain details pertaining to the application of an agreement, an optional arrangement extending an obligatory convention, or a technical instrument as an annex to a general agreement. It may substitute for an agreement or an exchange of notes, which can be used to record a bilateral agreement or its modification.

      International instruments have proliferated since World War II; between 1945 and 1965, there were about 2,500 multilateral treaties, more than in the previous 350 years. As the countries of the world have become more interdependent, this trend has continued. Most multilateral agreements are negotiated by conferences. The negotiations are numerous and often protracted, sometimes producing multivolume treaties.

Conference diplomacy
      Professional diplomats are rarely dominant in conferences, where the primary role is usually played by politicians or experts—especially at summits, the most spectacular type. Heads of state or government or foreign ministers meet bilaterally or multilaterally. Summit diplomacy can be risky, a point made in the 15th century by the Burgundian diplomat and chronicler Philippe de Commynes (Commynes, Philippe de), who wrote, “Two great princes who wish to establish good personal relations should never meet each other face to face, but ought to communicate through good and wise emissaries.” Summits also raise expectations; if poorly prepared, they can be disastrous failures. As former U.S. secretary of state Dean Acheson (Acheson, Dean) once remarked, “When a chief of state or head of government makes a fumble, the goal line is open behind him.” Haste can also lead to bad bargains or murky texts. On the other hand, the development of personal relationships between leaders can be an asset, and political leaders can speed agreement by setting guidelines or deadlines and cutting through bureaucratic thickets.

      Summits put professional diplomats briefly into the shade but rarely hurt their standing unless there is constant intervention in their work by political leaders or other officials. In the 1970s, for example, the “shuttle diplomacy” of U.S. Secretary of State Henry Kissinger (Kissinger, Henry A.) in the Middle East served to reduce the incentive of leaders in the region to do important business with regular U.S. diplomatic representatives. Normally, the professionals resume their roles when the summit ends. Indeed, a visit by the foreign minister can be an asset to an ambassador by serving to raise his standing.

      A summit is often preceded or followed by coalition diplomacy. This necessary joint working out of common policies or responses to proposals by cabinet ministers may be fairly informal. Coalitions require cumbersome two-step diplomacy at each stage, arriving at a joint policy and then negotiating with the other party.

      Larger conferences are called, often under UN auspices, to address specific problems. The more technical the topic, the larger the role played by specialists. The trend over the last two decades of the 20th century was toward numerous conferences on social, economic, and technical issues. Many conferences produce agreements that create international law, often in new areas. In some cases the negotiations leading to these agreements are cumbersome. For example, in the 1973–75 Geneva Conference on Security and Cooperation in Europe, which led to the Helsinki Accords, all 35 states involved participated actively under a unanimity rule. In other cases the negotiations are protracted, as they were in the Law of the Sea conferences, which lasted more than a decade. As the 20th century ended, sharp differences of international opinion on various issues, ranging from global warming and disarmament to the Arab-Israeli conflict, sometimes led to impasses at such conferences. Given the American eagerness to promote multilateralism earlier in the century, it was ironic that, whereas European and most Asian countries were convinced of the utility of multilateral approaches to problem solving, the United States seemed increasingly disinclined to pursue them.

      International organizations (international organization) play several roles in multilateral negotiations, including sponsoring conferences and also encouraging coalition diplomacy. ASEAN (the Association of Southeast Asian Nations), the Arab League, and the EU attempt to create a unified policy for their members. Regular meetings of the UN, its agencies, and regional organizations provide forums for parliamentary diplomacy, oratory, propaganda, and negotiation. International bureaucracies negotiate with each other and with individual states. This is particularly true of the UN and the EU, the latter of which has assumed some attributes of sovereignty. UN peacekeeping forces have played an important role, and the secretary-general engages in third-party diplomacy to bring feuding states to agreement or at least to keep them talking until the quarrel has faded. States, specialized agencies, and regional entities also conduct third-party diplomacy.

Personnel
      Diplomatic personnel undergo rigorous selection and training before representing their country abroad. Except in a few cases, those conducting diplomacy are usually professional diplomats, whether ambassadors or third secretaries, or specialists with the title of attaché. Some regimes still use ambassadorships to exile political opponents; others, such as Britain, deviate from career appointments occasionally for special but nonpolitical reasons. Despite much empirical evidence to suggest that the practice is unwise, U.S. presidents continue to reward major campaign contributors with choice embassies. Even when the ambassador is an amateur, however, other staff members, almost without exception, are career professionals.

      Applicants for diplomatic positions generally are university graduates who face grueling oral and written examinations, which few survive. These exams test an applicant's skills in writing, analyzing, and summarizing and the ability to spot essentials and deal with problems, as well as persuasiveness, poise, intelligence, initiative, and stability. As a result of attempts by advanced industrial countries to diversify the educational, ethnic, social, and geographic backgrounds of their diplomatic staffs, foreign-language proficiency is no longer required for entrance into diplomatic training programs; all states educate accepted candidates in languages and etiquette. Despite diversification, the best-educated and most-poised candidates tend to succeed.

      All countries agree on the need for proficiency in foreign languages. Not only are English-, French-, and Spanish-speaking diplomats maintained, but countries often seek candidates with skills in languages such as Arabic, Chinese, German, Japanese, Portuguese, Russian, and others. Language training is provided at a foreign service institute, at local universities, or abroad. Most states also stress knowledge of economics, geography, international politics, and law, and many teach their own history and culture. Some provide added academic training; others, including the United States, are more practical in orientation. In the debate over whether career officers should be generalists or specialists, the United States favours modest specialization—for example, in African economics—whereas many states, particularly small countries that cannot afford specialists, prefer generalists.

      There are three basic approaches to training, though there are also variations of each. Britain (United Kingdom) and some Commonwealth states couple brief orientation with a long apprenticeship and on-the-job training, some of which occurs in all systems. The French method, also widely imitated, entails intensive training in a school of public administration, in some states with added specialization. India combines the British and French styles in a three-year program. Prospective Brazilian (Brazil), Egyptian (Egypt), and German (Germany) diplomats train for one to three years in an academy that is usually staffed by a combination of senior diplomats and academics and run by the foreign ministry. The United States has no diplomatic academy; instead, it offers highly focused vocational and language training to its diplomats as needed.

      Training presents special problems for small new countries, which often use facilities offered by the UN and the Diplomatic Academy of Vienna. A few regional training centres also have been established. Most foreign services, however, rely on a combination of university training and on-the-job apprenticeship.

      Once trained, career diplomats serve their foreign ministry abroad or staff it at home. Foreign ministries are similarly organized. They are led by the foreign minister, who is usually a member of the cabinet or dominant political body. In most countries, except those governed by dictatorships, he often belongs to the legislative body, though the U.S. secretary of state does not. Some states use the British system of parliamentary undersecretaries to handle legislative responsibilities. Otherwise, except for the minister's staff, employees are civil servants led by a permanent undersecretary or secretary-general, who runs the ministry. The United States is unusual in that it does not have a professional director and the entire top echelon of its diplomatic corps—deputy secretary, undersecretaries and their deputies, and assistant secretaries—is made up of political appointees who are changed with each administration.

      Except in the smallest states, foreign ministries are organized both geographically and functionally. The functional departments include administration, personnel, finances, economic affairs, legal affairs, archives, and perhaps offices dealing with science, disarmament, narcotics, and cultural diplomacy. Geographic division is generally by region, subdivided into country desks that deal with accredited embassies and their own missions abroad. Envoys from other states normally see the senior area specialist or the regional assistant secretary, as foreign ministers do not have time to see more than selected ambassadors of a few key countries for especially important questions. Although generalists are preferred in most foreign ministries, some area and country staff will have significant expertise. Despite rotation, this is particularly true in the United States, where career officials specialize in political, economic, administrative, or consular work. All foreign ministries are staffed in varying ratios by two kinds of career diplomat: civil servants based in the capital and foreign service officers on periodic home assignment. Whichever kind they may be and wherever they may serve, they use diplomacy to pursue their country's interests, to engage in international discourse, and to alleviate friction between sovereign states.

Sally Marks Chas. W. Freeman, Jr.

Additional Reading

Classics
Classic works on diplomacy include Niccolò Machiavelli, “Advice to Raffaello Girolami When He Went as Ambassador to the Emperor,” in Chief Works, and Others, trans. from Italian by Allan Gilbert, vol. 1 (1965, reissued 1989), pp. 116–119, a letter written in 1552 by the political theorist; Abraham de Wicquefort, L'Ambassadeur et ses fonctions, 2 vol. (1680–81), also in many later editions; Monsieur de Callières, On the Manner of Negotiating with Princes, on the Uses of Diplomacy, the Choice of Ministers and Envoys, and the Personal Qualities Necessary for Success in Missions Abroad, trans. by A.F. Whyte (1919, reissued 2000; also published as The Practice of Diplomacy, 1919; originally published in French, 1716); Mr. Pecquet, Discours sur l'art de negocier (1737; also published as De l'art de negocier avec les souverains, 1738), another French treatise on the art of negotiation; and Harold Nicolson, Diplomacy, 3rd ed. (1963, reissued 1988).

General works
Chas. W. Freeman, Jr., Arts of Power: Statecraft and Diplomacy (1997), explores the relationship between statecraft and diplomacy and analyzes the functions of diplomats. Other modern works on international relations, diplomatic and consular services, negotiations, and treaties include José Calvet de Magalhães, The Pure Concept of Diplomacy (1988; originally published in Portuguese, 1982); K.M. Panikkar, The Principles and Practice of Diplomacy (1952, reissued 1957); G.E. do Nascimento e Silva, Diplomacy in International Law (1972); Martin Mayer, The Diplomats (1983); R.P. Barston, Modern Diplomacy, 2nd ed. (1997); and Keith Hamilton and Richard Langhorne, The Practice of Diplomacy: Its Evolution, Theory, and Administration (1995).

History
The history of diplomacy is discussed in Ragnar Numelin, The Beginnings of Diplomacy: A Sociological Study of Intertribal and International Relations (1950), which explores the practices of prehistoric societies; Frank Adcock and D.J. Mosley, Diplomacy in Ancient Greece (1975); Richard L. Walker, The Multi-State System of Ancient China (1953, reissued 1971); Gandhi Jee Roy, Diplomacy in Ancient India (1981); Donald E. Queller, The Office of Ambassador in the Middle Ages (1967); Garrett Mattingly, Renaissance Diplomacy (1955, reprinted 1988); William James Roosen, The Age of Louis XIV: The Rise of Modern Diplomacy (1976); Henry Kissinger, A World Restored: Metternich, Castlereagh, and the Problems of Peace, 1812–22 (1957, reissued 1999); Immanuel C.Y. Hsü, China's Entrance into the Family of Nations: The Diplomatic Phase, 1858–1880 (1960); Alan Palmer, The Chancelleries of Europe (1983), focusing on the 19th century; Robert A. Graham, Vatican Diplomacy: A Study of Church and State on the International Plane (1959); R.B. Mowat, Diplomacy and Peace (1935); Inis L. Claude, Jr., Swords into Plowshares: The Problems and Progress of International Organization, 4th ed. (1971, reissued 1984); and Henry Kissinger, Diplomacy (1994), a critical history of modern statecraft with special reference to the United States.

Country studies
Diplomatic services and foreign ministries of individual states are discussed in Norman A. Graham, Richard L. Kauffman, and Michael F. Oppenheimer, The United States and Multilateral Diplomacy: A Handbook (1984); Roger Bullen (ed.), The Foreign Office, 1782–1982 (1984), on Britain; Jean Baillou (ed.), Les Affaires étrangères et le corps diplomatique français, 2 vol. (1984), on France; Robert S. Ozaki and Walter Arnold (eds.), Japan's Foreign Relations: A Global Search for Economic Security (1985); James Chieh Hsiung, Law and Policy in China's Foreign Relations: A Study of Attitudes and Practice (1972); Xiaohong Liu, Chinese Ambassadors: The Rise of Diplomatic Professionalism Since 1949 (2001); Jeffrey Benner, The Indian Foreign Policy Bureaucracy (1985); Ronald M. Schneider, Brazil: Foreign Policy of a Future World Power (1976); R.P. Barston (ed.), The Other Powers: Studies in the Foreign Policies of Small States (1973); Robert J. Moore, Third-World Diplomats in Dialogue with the First World: The New Diplomacy (1985), the partially polemical views of a Guyanan diplomat; and Elmer Plischke, Microstates in World Affairs: Policy Problems and Options (1977).

Regional studies
Analysis of regional developments and influences that shape them can be found in Charles G. Fenwick, The Organization of American States: The Inter-American Regional System (1963); Jacqueline Anne Braveboy-Wagner, The Caribbean in World Affairs: The Foreign Policies of the English-Speaking States (1989); Heraldo Muñoz and Joseph S. Tulchin (eds.), Latin American Nations in World Politics, 2nd ed. (1996); Stanley A. de Smith, Microstates and Micronesia: Problems of America's Pacific Islands and Other Minute Territories (1970); Peter Willetts, The Non-Aligned Movement: The Origins of a Third World Alliance (1978, reprinted 1982); Caroline Thomas, In Search of Security: The Third World in International Relations (1987); Augustus Richard Norton and Martin H. Greenberg (eds.), The International Relations of the Palestine Liberation Organization (1989); and Ali A. Mazrui, Africa's International Relations: The Diplomacy of Dependency and Change (1977).

Diplomatic negotiations and dispute resolution
Informed explorations of diplomatic negotiations in international disputes are offered in Fred Charles Iklé, How Nations Negotiate (1964, reprinted 1987); Arthur S. Lall, Modern International Negotiation: Principles and Practice (1966); Arthur S. Lall (ed.), Multilateral Negotiation and Mediation: Instruments and Methods (1985); I. William Zartman and Maureen R. Berman, The Practical Negotiator (1982); Alain Plantey, La Négociation internationale: principes et méthodes, 2nd updated ed. (1994); Fred Charles Iklé, Every War Must End, rev. ed. (1991); and Raymond Cohen, Negotiating Across Cultures: International Communication in an Interdependent World, rev. ed. (1997).

Diplomatic structures and training
Structures of diplomatic administration and training of diplomatic corps are examined in William I. Bacchus, Staffing for Foreign Affairs: Personnel Systems for the 1980s and 1990s (1983); A. Doak Barnett, The Making of Foreign Policy in China: Structure and Process (1985); Andrew L. Steigman, The Foreign Service of the United States: First Line of Defense (1985); and Zara Steiner (ed.), The Times Survey of Foreign Ministries of the World (1982).

Reflections by diplomats
Useful reflections by practicing diplomats include Douglas Busk, The Craft of Diplomacy: How to Run a Diplomatic Service (1967); William Macomber, The Angels' Game: A Commentary on Modern Diplomacy, rev. ed. (1997); Pietro Quaroni, Diplomatic Bags: An Ambassador's Memoirs, trans. from Italian and ed. by Anthony Rhodes (1966); E. Wilder Spaulding, Ambassadors Ordinary and Extraordinary (1961); Charles W. Thayer, Diplomat (1959, reprinted 1974); Humphrey Trevelyan, Diplomatic Channels (1973); and Chas. W. Freeman, Jr., The Diplomat's Dictionary, rev. ed. (1997), a compendium of diplomatic quotations and lore.

Special studies
Special studies offer insights on various topics. The protection of diplomats is discussed in P.J. Boyce, Foreign Affairs for New States: Some Questions of Credentials (1977); Grant V. McClanahan, Diplomatic Immunity: Principles, Practices, Problems (1989); and Natalie Kaufman Hevener (ed.), Diplomacy in a Dangerous World: Protection for Diplomats Under International Law (1986). Elmer Plischke, Diplomat in Chief: The President at the Summit (1986), deals with the role of U.S. presidents in foreign affairs. Walter Isard et al., Arms Races, Arms Control, and Conflict Analysis: Contributions from Peace Science and Peace Economics (1988), explores diplomacy and peace research. The importance of embassies and diplomatic spouses is discussed in Martin F. Herz (ed.), The Role of Embassies in Promoting Business (1981, reissued 1987), and Diplomacy: The Role of the Wife (1981).Sally Marks Chas. W. Freeman, Jr.

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Universalium. 2010.

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