U.S. May Name Black as Envoy to South Africa

The Reagan Administration is considering the appointment of a black businessman as U.S. ambassador to South Africa to underscore President Reagan’s opposition to apartheid, Administration officials said Monday.

Herman Nickel, the current ambassador, is expected in Washington on Wednesday to participate in a policy review on South Africa. Administration officials are searching for ways to bring about peaceful reform without abandoning the controversial concept of “constructive engagement.”

Administration sources confirmed that Nickel is not expected to return to the post and that Robert Brown, 51, a public relations and management consultant from North Carolina, is the leading contender to replace him.

Earlier this year, Brown led a group of black educators to South Africa to help develop a U.S. program for training teachers and otherwise improving education opportunities for blacks in the country.

“The appointment of a black to this particular job would in itself be a powerful message to the Botha government,” said one source, speaking on condition that he not be identified.

The Administration’s policy assessment was fueled by Reagan’s frustration with South African President Pieter W. Botha’s refusal last month to lift the current state of emergency to allow blacks to commemorate the 10th anniversary of a popular uprising in the black township of Soweto.

Brown’s nomination would be unassailable on Capitol Hill, this source added. While he is closely allied with civil rights leaders such as the Rev. Jesse Jackson and Atlanta Mayor Andrew Young, he also wins high praise from such conservative leaders as Sen. Jesse Helms (R-N.C.).

Helms, the ranking majority member of the Senate Foreign Relations Committee, was described by a staff aide, Cliff Kiracoffe, as a friend and admirer of Brown. Kiracoffe said Brown had worked with Helms on Republican Party matters in North Carolina.

Served Under Nixon

Young, a friend of Brown’s from their days in the Southern Christian Leadership Conference, said in a statement, “I cannot think of anybody more qualified to represent this country in a difficult situation.” Young recalled that Brown had served in the White House during the Richard Nixon Administration.

“Unlike blacks in the Ronald Reagan White House, he really represented blacks well,” Young added.

A State Department official said that possible successors to Nickel have been under consideration for some time. Nickel has been in the tense post since April, 1982. A normal tour of duty is three years, so he is regarded as overdue for rotation.

Policy Architect

As one of the architects of “constructive engagement,” Nickel has long argued that quiet, non-confrontational pressure is the only way to bring about reform in South Africa. He has been criticized for having few contacts with blacks and for exaggerating the need to accommodate white resistance.

White House officials still embrace “constructive engagement” and oppose sanctions against the Pretoria regime, but they would like to strengthen communications with black leaders in South Africa, especially members of the African National Congress.

The white-ruled government has outlawed the congress as a terrorist group and charges that it is controlled by Communists.

The floating of Brown’s name appeared to be an effort to test reaction both at home and abroad to sending the first black envoy to the white-ruled country. As President Nixon’s liaison officer to the black community, Brown won high marks for his ability to negotiate difficult situations and build bridges between the races.

More Traditional Candidate

Another leading, but more traditional candidate being considered is Richard Viets, 55, a career Foreign Service officer who served as ambassador to Tanzania and Jordan.

The appointment of a new ambassador comes at a time when the Administration is attempting to invigorate its policy in the face of increasing violence and repression in South Africa. A decision on who is to be sent to South Africa is expected before Secretary of State George P. Shultz testifies on the Administration’s evolving South African policy before the Senate Foreign Relations Committee on July 23.

The White House is also debating whether Reagan should deliver a major speech next week to set forth and explain any policy changes. That decision hinges on a number of factors, an aide said. Opponents of the speech argue that it is not necessary at this time and, in the words of one, that Reagan should “hold his ammunition for when it’s needed.”

More Controversial Issues

Officials also are concerned that Reagan has invested too much presidential capital in recent months on controversial foreign-policy issues such as aid to the Nicaraguan rebels and arms for Saudi Arabia. They believe that U.S. policy toward South Africa should be allowed to play out in a less-heated atmosphere.

On the opposing side, politically attuned officials think that Reagan should personally trumpet any changes in the Administration’s policy toward South Africa, if only because the current approach has been under such attack on Capitol Hill. Officials involved in the policy assessment insist that stiffer sanctions will not be the outcome, but that increased contact with black leaders will inevitably indicate a tougher stance toward the white-ruled government.

Times staff writers Michael Parks in Johannesburg and Don Shannon in Washington contributed to this story.