Ch. 11- Cultural Diversity

Chapter 11

Cultural Diversity

• Cultural Awareness
• Cultural Differences
• Business Culture
• Language and Conversations
• Trafficking in Persons
• Additional Guidance

Cultural Awareness

A Defense Science Board report, Understanding Human Dynamics, explains that cultural awareness is increasingly important in contingency situations.¹

By its very nature, an individual's culture is largely unconscious, stemming from a collection of beliefs and behaviors the individual often takes for granted without constant assessment. However, understanding what defines one's own culture can help one to understand foreign cultures and vice versa. For example, a member of the US [United States] military may assume that others share his or her beliefs about equality or democracy, that a lack of punctuality is a sign of disrespect or laziness, and that his or her good intentions as an American soldier, sailor, airman, or marine are self-evident. Often these are good assumptions [but] at other times, they are dangerously inappropriate.

Contracting officer's representatives (COR) who work with local nationals or third country nationals should be aware of the total spectrum of communication: language, nonverbal communication, customs, perceived values, and concepts of time and space. Not understanding all the ways the local population communicates can lead to serious misinterpretation and possible failure of the contract.

In some non-Western cultures, contractors confronted by criticism may react by interpreting the facts to suit themselves or flatly denying the facts. This can cause problems for a COR. Therefore, CORs should take a very indirect approach toward any corrective action. For example, when answering questions that require a "yes" or "no" answer, such as "Do you understand?" the contractor (who may be preoccupied with appearances and politeness) may automatically answer "yes," whether the answer is true or not.

The polite way for many non-Westerners to say "no" is to say, "I'll see what I can do," no matter how impossible the task may be. Another common phrase is "in sha' Allah," which means "if it is God's will" (a more realistic translation: it is not going to happen). Remember that "yes" does not always mean yes. After every meeting with a contractor, the COR should prepare meeting minutes and ask the contractor to review and accept or reject the minutes.

Cultural Differences

The COR needs to consider cultural differences when monitoring contracts overseas. Listed below are some examples of differences that can affect how a contract may need to be managed.

• Americans value equality and believe that they will become successful if they work hard. In the Middle East, family status is more important to success. For example, to become a police officer in Saudi Arabia, a person must be related to the King, even if remotely, like a third cousin.
• Americans value competition, but in many places of the world, cooperation is more important. This cultural difference can lead to collusion among contractors proposing on contracts. For example, contractors may decide which one of them will get the next contract.
• Americans value individuality. In places like the Middle East, the group or tribe is more important than individuals and may be key to an individual's success.
• In the Mediterranean, South American, and Asian cultures, extended family is very important.
• In many countries, age is more important than youth. Tribal people in the Middle East value the elders due to their knowledge of the tribe; if they had a choice, they would rather a child die than an elder. A child can be replaced while an elder's knowledge cannot.

To work effectively with people from other cultures, the COR should keep the following tips in mind.

• Be careful when using first names. First names may mean a lifelong relationship. Therefore, be careful to use only last names unless the relationship is sincerely close. Using first names too freely may hurt the COR's reputation and possibly the business relationship.
• Learn the local way of handling criticism and making a point properly. Constructive criticism is often viewed as a personal attack.
• Learn key phrases in their language, such as hello, goodbye, please, and thank you. People from other countries often know more than one language, while Americans generally know only English. Most foreigners go more than half way when they learn English. They will greatly appreciate the COR who tries to meet them part way.
• Avoid discussing religion and politics, asking highly personal questions, and making ethnic jokes.
• Find different ways of saying "no" without actually saying "no." For example, the COR could say "I'll see what I can do." Americans appreciate an honest answer, but in many cultures, an evasive answer is the norm, because people from such cultures do not want to disappoint others. In some cultures, "no" is interpreted as an expression of personal dislike.
• Be sensitive to ethnic or national sensitivities. For example, do not refer to people from Okinawa as Japanese, and do not refer to the Arabian Gulf as the Persian Gulf when speaking to a Saudi. In other cases, not knowing or not distinguishing the difference between nationalities can cause hard feelings. Do Canadians like being grouped in with Americans? Do the Scots like being referred to as English.

Working in another culture can be an exciting experience. CORs may make friends for life and do things they never thought possible. However, CORs must be careful when dealing with foreign contractors. There is a thin line between working within the foreign culture and violating US laws. Even the best intentions can land someone in jail. CORs must be careful and understand their limitations. Even if it is legal to do something, it does not necessarily mean it should be done. The COR should consult the legal office about such concerns.

Business Culture

CORs meet with contractors routinely. When scheduling meetings, CORs must ensure that the needs of the government are met, while not unnecessarily exposing personnel to hostile forces. For example, the COR should not put personnel in harm's way to inspect a load of bottled water.

CORs must remember that non-Westerners often start meetings with small talk. Sometimes they may even have a meal together before turning to business. To put it another way, getting down to business is alien to some cultures. The COR should discuss this issue—particularly, the need to accept meals—with your leadership and the contracting officer.

Third world contractors may view time differently than Americans. The US Army's hurry up and wait mentality is often viewed as an insult. A COR may find that a contractor's approach to time is much slower and more relaxed than in American culture. This cultural difference can frustrate a COR to the point of being counterproductive. To be effective, the COR needs to understand the differences and work within the system, rather than forcing American ideas of urgency.

Americans love their personal space, but in many countries, such as in the Middle East, personal space is very small. In those countries, moving away from the person gives the perception you do not like them (and may be considered rude). Touching may be more or less prevalent. In the Middle East, holding hands for a long time, compared to a normal handshake, is common. Their handshake may be soft and may hold your hand for 30 seconds to a minute, which may be awkward for those who are not used to it.

Living patterns are very different in some countries. For example, in Saudi Arabia, nothing much gets done from June to September due to vacations. Also, CORs should be prepared for contractors to accomplish very little during Ramadan, a month-long Muslim holiday that is a time for spiritual purification achieved through fasting, self-sacrifice, and prayers.

Some contractors expect kickbacks, finder's fees, exchanges of gifts, or other gratuities that are illegal for US personnel to provide or accept. CORs must be vigilant to ensure that they do not violate standards of conduct. Typically, corruption is a COR's number one threat.

Language and Conversations

CORs may require interpreters in order to communicate effectively. English phrases and the local language should be spoken with caution to avoid misinterpretation (for example, a COR may ask for a truckload of gravel and instead get a truckload of chickens). In addition, CORs must remember to use appropriate measures and equivalents in their requirements; most likely CORs are in countries that use the metric system. Do not expect local nationals to understand what 2" x 4" lumber is in metrics. (Appendix 5 contains metric conversions.)

Listed below are some guidelines on using an interpreter.

• Assess risk and ensure personnel safety.
• Speak in the first person and enunciate clearly.
• Use clear, straightforward sentences (but not "Me Tarzan, You Jane"style sentences).
• Carry a notepad and take notes, as needed.
• Ask questions when not sure of a term, phrase, concept, or abbreviation.
• Do not engage in side conversations or become an advocate or mediator in the dialogue.
• Be constantly attuned to your audience's comprehension level. Slow down, repeat, or elaborate as needed. Test the comprehension of both the audience and the interpreter.
• Be sensitive to cultural differences, and be careful not to be condescending.
• Use visual aids—a picture is worth a thousand words.
• Take steps to help the interpreter do the best possible job.
  • Try to spend a little time with the interpreter before the event begins. The speaker and interpreter should not work together cold.
  • Use visual aids—rehearse and translate with the interpreter in advance.
  • Remain in close proximity when you are speaking. Ideally, the interpreter should remain invisible.
  • Allow time for the interpreter to translate what you have said.
  • Do not distract the interpreter by passing notes, whispering, or participating in side conversations.
  • Finally, if the COR's interpreter does not look good, the COR does not look good. Although it is the interpreter's responsibility to do an excellent job, the COR should be aware of ways in which he can assist the interpreter in that effort

Trafficking in Persons

According to the United Nations, human trafficking "involves the movement of people through violence, deception, or coercion for the purpose of forced labor, servitude, or slavery-like practices." Traffickers use violence, threats, and other forms of coercion to force their victims to work against their will. For example, they control the victims' freedom of movement; where and when they will work; and what pay, if any, they will receive. Victims of human trafficking no longer control their lives; their lives belong to the trafficker who is holding them against their will. Human trafficking is not new and is actively practiced globally, especially in third-world countries where CORs are most likely operating.

The US military has a particular duty to act, because human trafficking is a direct threat to our national security. CORs must be aware of how contractors treat their employees. CORs are the first line of defense in the battle against human trafficking. The following three-tier approach helps to combat human trafficking.

• Education and awareness.
  • All Department of Defense military personnel, civilian personnel, and contractors must receive mandatory trafficking in persons (TIP) awareness training.
  • Every COR must receive TIP awareness training. CORs must place their certificates of completion in their COR working files.
• Policy and enforcement. The contracting officer must ensure that contracts contain language to protect individual rights and to promote the rule of law in the host nation and in the labor recruiting process.
• Inspection. The COR must correct and report any suspected violations or activities to the contracting officer.

If a contractor fails to comply with the TIP clause in the contract, he or she may be subject to one or more of the following disciplinary actions, as determined by the contracting officer.

• Required removal of a contractor employee or employees from the performance of the contract
• Required subcontractor termination
• Suspension of contract payments
• Loss of award fee for the performance period in which the government determined contractor noncompliance
• Termination of the contract for default, in accordance with the Termination clause of the contract
• Suspension or debarment

Government employees also are responsible for avoiding TIP-related actions such as the following.

• Buying or selling human beings
• Patronizing forced prostitutes or forced labor establishments
• Holding an employee's passport
• Confining employees to a disciplinary bunker, providing only food and water

Additional Guidance

Listed below are some sources of additional guidance on cultural awareness.

• The US Marine Corps Center for Advanced Operational Culture Learning (CAOCL) provides information about regional cultures and languages to help planning and operations in a Joint expeditionary environment. The CAOCL Web site (http://www.tecom.usmc.mil/caocl/) provides specific cultural links related to Operation Iraqi Freedom, Operation Enduring Freedom, United States Africa Command, United States Pacific Command, United States Southern Command, and United States Central Command.
• The Defense Language Institute Foreign Language Center offers culturally based education (including predeployment materials) in more than 40 languages. The center's Web site offers downloadable products for predeployment training, deployment use, or refresher training at http://www.dliflc.edu/products.html.
• The Air Force Air University Web site offers sociocultural and language resources at http://www.au.af.mil/culture/index.htm. One such resource is the Air Force Culture and Language Center's Expeditionary Skills Training Portal (http://www.culture.af.edu/estPortal.html) for those who are preparing to deploy.

Notes

0. Office of the Under Secretary of Defense for Acquisition, Technology and Logistics [Online] Available: http://www.au.af.mil/au/awc/awcgate/dod/ dsb_human_dynamics.pdf. Top

Chapter Acronyms

COR – Contracting Officer's Representative

CAOCL – Center for Advanced Operational Culture Learning

DoD – Department of Defense

TIP – Trafficking in Persons

US – United States