COVID-19 upended systems. Now we’re focused on structural racism like never before. So how can Peace Corps help this nation live up to its ideals?
By Lex Rieffel
Illustration by Sandra Dionsi / Theispot
The COVID-19 pandemic that erupted at the beginning of this year massively disrupted behavior that has for a long time been taken for granted — between people and between nations. Then in May the death of George Floyd in Minneapolis under the knee of a policeman sparked unprecedented demonstrations around the world to end systemic racial discrimination and improve social justice.
Years will pass before new patterns of home life and work life become normal and before international relations achieve new forms of openness and interaction. Policies, programs, projects, and institutions will have to be adapted to meet this new reality. It will not be easy. It will require political will not seen since World War II, and a reckoning with racism that precedes the founding of the United States.
As it prepares to celebrate in 2021 its 60th year of working to make the world a better place, the Peace Corps, too, will have to change. Even the three goals announced at its founding will need to be reconsidered:
1. To help the people of interested countries in meeting their need for trained men and women.
2. To help promote a better understanding of Americans on the part of the peoples served.
3. To help promote a better understanding of other peoples on the part of Americans.
Perhaps the focus should be less on training and more on meeting global challenges like climate change and conflict.
MY PEACE CORPS GROUP, India XVI, served in the mid-1960s. This was the heyday of the Peace Corps. It had blossomed to become a vibrant agency in less than ten years, with almost 16,000 Volunteers serving in scores of countries. Then the Vietnam War and President Nixon crippled both the supply of volunteers and the demand from host countries, reducing the number of serving Volunteers to under 5,000 in the early 1980s.
A passionate campaign in that decade produced enough bipartisan support in the Congress to stop the decline in the number of Volunteers and begin a slow buildup. However, three successive presidents — Clinton, Bush-43, and Obama — failed to achieve their election campaign pledges to double the number of serving Volunteers from the levels they had inherited; Clinton inherited some 5,400, Obama just over 7,000 — about the number now. There was insufficient support in the Congress for a bigger Peace Corps budget to overcome the opposition of a vocal minority. Voters seemed convinced that U.S. national security depended more on putting boots on the ground overseas than sneakers on the ground.
Anti-Peace Corps sentiment in the Congress has strengthened during the Trump Presidency. A bill was introduced in the House last year to defund the Peace Corps and attracted more than 100 votes. It’s easy to imagine the Peace Corps being defunded in a second Trump Administration. But it’s also possible to imagine a stronger Peace Corps emerging under a new president.
Revolutionary and Inclusive
Wearing my economist hat, here is my best guess about the supply and demand for Peace Corps Volunteers, regardless of who is elected in November.
It seems likely that more American men and women will be interested in joining the Peace Corps in the coming years because higher education and the job market in the USA have been so greatly disrupted. Even before the pandemic arrived, the job market was being reshaped by artificial intelligence, robotics, and other factors. The “normal” pattern of getting a full-time job with benefits was no longer the default option for many graduates. The gig economy was expanding visibly.
The pandemic has delivered a body blow to higher education that will almost certainly lead to dramatic changes. Already we see far more high school graduates exploring gap year options. More fundamentally, financial constraints are likely to reduce residential enrollment substantially for several years. College dropouts and people who have lost their jobs due to the pandemic, regardless of their age, may find the Peace Corps and other forms of public service to be appealing options.
The biggest unknown on the supply side is how the current debate on national service will play out. Too few Americans are aware of the existence of the National Commission on Military, National, and Public Service. Mandated by the Congress in the authorizing legislation for FY2017, the Commission issued its final report in March 2020, and held its public rollout on June 25. Its recommendations represent “a revolutionary and inclusive approach to service for Americans.”
The National Commission found compelling reasons “to cultivate a widespread culture of service” in the United States. Its report states that bold action is required, not incremental change. Its recommendations begin with “comprehensive civic education and service learning starting in kindergarten” and extend to making service-year opportunities so ubiquitous that “service becomes a rite of passage for millions of young adults.” If acted upon, the result will enhance national security and strengthen our democratic system.
The Commission proposes an ambitious goal of having 5 million Americans every year begin participating in military, national, or public service by 2031.
The Commission proposes an ambitious goal of having 5 million Americans every year begin participating in military, national, or public service by 2031. Among these, it calls for one million to be supported by federal funding, ten times the number currently supported. The Peace Corps is explicitly included in this vision, though the Commission does not recommend a specific number of Peace Corps Volunteers. It does explicitly call for an expansion of Peace Corps Response, making the program more accessible to older Americans and people with disabilities, with increased opportunities for “virtual” volunteering.
The pandemic could actually accelerate the idea of creating a voluntary national service norm, for women as well as men. Bipartisan legislation has already been introduced to scale up AmeriCorps and other domestic service programs. Experts and activists have called for establishing new programs for rapid employment of contact tracers and health workers to stop the pandemic in the USA. The ongoing demonstrations against racism in the wake of George Floyd’s murder have brought forth proposals for new community-based service initiatives. The Civilian Conservation Corps (CCC) created in the Great Depression of the 1930s has been cited as a model for a form of service program that could emerge to reduce the highest unemployment rate the country has seen in the past 75 years: 14.7 percent at the end of April and 13.3 percent at the end of May.
The Peace Corps budget is a tiny part of the federal budget. For example, its appropriation of $410.5 million for FY2020 was less than two-tenths of one percent of the Defense Department’s budget request for weapons procurement. It shouldn’t take much political will in the Congress to double or triple the Peace Corps’ budget if there is growing voter support for national service. The crucial question will then become how many of the men and women seeking a service opportunity will be attracted to living in a foreign country. A big part of the answer will depend on evolving perceptions of the health and security risks of working outside the USA. Quite possibly, fewer Americans will want to spend two years in some remote village in a country they couldn’t find on a map, even with a promise of reliable internet access. On the other hand, some of the recently repatriated Peace Corps volunteers are continuing their service online, and forms of virtual service internationally may become more feasible and attractive.
In short, the supply could conceivably be sufficient to produce a Peace Corps with as many as 100,000 volunteers serving abroad by 2031, but that must be considered a best-case outcome.
The demand from host countries, by contrast, may be insufficient to even maintain the pre-pandemic level of 7,000 volunteers in the field. There will be an early test of this demand: how many of the 60-odd countries hosting volunteers before the pandemic erupted will welcome them back. The process of renegotiating programs with these countries will undoubtedly be challenging.
Who needs the Peace Corps?
In the 1960s, the whole world — even countries in the Communist Bloc — looked up to the USA with envy because of its high standard of living, its rich culture (movies, theaters, museums, etc.), its outstanding universities, its technological advances (putting men on the moon), its fight for civil rights, its enduring democratic political system, its international leadership. Few countries still look up to the USA in this comprehensive way. Over the past two decades or more, we have squandered our position of preeminence.
It seems extremely unlikely that the world will revert to the openness that existed a decade ago. There will be less trade, less tourism, less migration.
That’s just the beginning of the problem. The process of globalization led by the United States started slowing down with the terrorist attacks on New York City and Washington, D.C., in 2001 and halted with the Global Financial Crisis emanating from the USA in 2007–08. By 2015, globalization was unwinding. That was the year the refugee exodus from the Middle East quickly led most European countries to restrict immigration severely. Another big setback came with the Brexit vote in June 2016, followed a few months later by the election of President Trump on an anti-globalization platform. It seems extremely unlikely that the world will revert to the openness that existed a decade ago. There will be less trade, less tourism, less migration. Climate change is likely to produce more border closing than border opening.
In short, in a world where most governments are preoccupied with addressing internal problems and in which internet access is penetrating into the far corners of the globe, few countries are likely to need Peace Corps volunteers or want them.
At the same time, the rise of China and other countries forces us to reconsider our national security in a world where the U.S. population of 330 million represents barely 4 percent of Earth’s total population of 7.7 billion. Military power cannot possibly be enough to maintain the respect of the rest of the world. To some extent, this power seems to have made the rest fear the USA more than admire it. In this case, America’s national security may depend greatly on how well the rest of the world understands the positive features of our country. Promoting that understanding just happens to be the second goal of the Peace Corps.
FROM A DEEPER DIVE into the risk of border-related conflict in the coming decades emerges an argument that a “whole world peace corps” is needed more than lots of separate national Peace Corps-like programs. Thus, the most ambitious approach to reinventing the Peace Corps might be to transform the existing UN Volunteer program into a World Peace Corps, with every country establishing an affiliate. The U.S. Peace Corps, for example, would be rebranded as “World Peace Corps - USA.”
By contrast, the least ambitious vision for the post-pandemic Peace Corps would be to re-establish its recent level of 7,000 serving volunteers, making the adjustments necessary to restore programs with previous host countries and find some new ones. This should be doable — though it’s important not to underestimate the complexities that will arise.
So, what is the most impactful and politically feasible approach that the large “Peace Corps family” should pursue? A time of crisis like today’s provides an ideal opportunity to assess and debate alternatives. For this reason, the National Peace Corps Association is convening a summit on July 18 to explore the future of Peace Corps — and the broader Peace Corps community.
Among options worth considering: programs that bring to the USA as many volunteers from countries hosting Peace Corps volunteers as we send to them.
There are a number of options worth considering between a World Peace Corps and reverting to the barely visible program of the past 40 years. Most important among them may be two-way service programs: programs that bring to the USA as many volunteers from countries hosting Peace Corps volunteers as we send to them. This was part of Sargent Shriver’s vision back in the 1960s, but it was a nonstarter with the U.S. Congress. Now we have to ask ourselves why any country negotiating with the Peace Corps would fail to insist on a two-way program.
The resistance, sadly, will be within the USA, despite the fact that there is an abundance of service work that men and women from foreign countries could usefully do here. Disaster relief is just one obvious area. Few Americans know that thousands of individuals in Ireland raised more than $3 million for the Navajo nation to help fight the pandemic. Firefighters have come from as far away as Australia to battle wildfires in California and other states.
Teaching is probably the most interesting area for two-way service. Think of the benefits of having at least one foreign teacher in every middle school and high school in the USA. They could teach foreign languages, geography, music, sports, and more. Their counterparts, Americans serving as volunteer teachers abroad, would do the same.
This could be the easiest way to build on the Third Goal of the Peace Corps in the post-pandemic world: helping Americans to better understand people in the rest of the world. It would also represent a strong step to counter allegations that the Peace Corps is a manifestation of “white saviorism.”
Such a two-way teaching program could be established within the State Department (like the Fulbright and the Humphrey programs) or under the Corporation for National and Community Service. But there is one glaring problem here.
Anti-Peace Corps sentiment in the Congress won’t go away in a post-Trump administration. A bigger, better, bolder Peace Corps in its current form as a federal agency may well be a political nonstarter even under a Democratic administration. If so, converting the Peace Corps from a U.S. government agency to an independent, private sector NGO might represent the best chance to build an international service program that continues to be “the best face of America overseas.”
With a nonpartisan board of trustees composed of eminent personalities, this NGO could be generously funded by individual donors, foundations, and corporations, as well as receiving core grants from the federal budget. Largely freed from government fetters, it could iterate toward an array of programs of international service that contribute materially to a more peaceful and prosperous world. Operating within this organization, the Peace Corps could remain the gold standard of international service.
Yet now we have a fresh challenge — which is also coming to terms with a very old problem. To remain the gold standard, the Peace Corps will have to become more diverse, more inclusive. The report of the National Commission on Military, National, and Public Service has noted that our existing federal service programs have primarily benefited people from better educated and higher income families. This is true about the Peace Corps as much as other programs.
I hope readers will not simply “stay tuned” for a report from the National Peace Corps Association following the July 18 summit. I hope they will weigh in with constructive comments. For sure, there will be no consensus on how the Peace Corps should evolve, but I believe that the members of the Peace Corps family — more than 200,000 strong — are in the best position to understand the challenges and find a sensible way forward.
Lex Rieffel (India 1965–67) is a nonresident fellow with the Stimson Center. He served two years of active duty in the U.S. Navy before joining the Peace Corps. He has been an economist with the Treasury Department and USAID, a senior advisor for the Institute of International Finance, and a scholar at the Brookings Institution.