"To function effectively, this presidential appointee must be able to maintain a relationship of mutual confidence and respect with two people who are central in our government and who both outrank him: the Secretary of State and the United States Representative to the UN. If relations break down with either, the Assistant Secretary's usefulness is, of course, critically impaired. The protocol of the relationship places a handicap on the Assistant Secretary of State in carrying out his assigned duties. The United States Representative, particularly when he sits as a member of the President's Cabinet, obviously "outranks" the Assistant Secretary through whom he normally receives his instruction.