Iraq, One Year Later

A DIPLOMATIC DISSIDENT SPEAKS OUT ■ THE PEACE TABLE AFSA Annual Report Inside!

$3.50 / MARCH 2004 OREIGN ERVICE FJ O U R N A L STHE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS

WALKING THE TIGHTROPE Iraq, One Year Later

CONTENTS March 2004 ■ Volume 81, No. 3

F OCUSON I RAQ OPERATION IRAQI FREEDOM: THE ARAB REACTION / 50 20 / IRAQ, ONE YEAR LATER: EDITOR’S INTRODUCTION The war against Iraq has greatly exacerbated an already By Steven Alan Honley widespread mistrust of the U.S. in the Arab and Muslim worlds. Here is the view from Egypt. 22 / BLUEPRINT FOR A MESS By Khaled Abdulkareem The war in Iraq was a triumph of planning and implementation, but the postwar situation is a mess. ON THE GROUND IN POSTWAR IRAQ / 54 Here’s how it happened. Foreign Service personnel and their family members By David Rieff who have served in postwar Iraq share some of their experiences. 29 / RESTORING A SHATTERED MOSAIC By Steven Alan Honley A veteran FSO who served in Baghdad for six months following C OLUMNS the war explains why he is PRESIDENT’S VIEWS / 5 optimistic about Iraq’s future. Iraq: A Place for Professionals By Hume Horan By John Limbert AN THE NITED TATES 38 / C U S SPEAKING OUT / 13 EXPORT DEMOCRACY TO IRAQ? U.S. Diplomacy and Other Struggling to implant a democratic system in Iraq, the Sacrifices U.S. is being forced by political By John Brady Kiesling reality to make significant concessions. Page 20 By Marina Ottaway REFLECTIONS / 76 By John Buzbee 44 / FROM INTELLIGENCE ANALYST TO “CITIZEN WATCHDOG” Intelligence professionals were misused, both by the D EPARTMENTS senior leadership of the CIA and by the political LETTERS / 7 leadership of the country — not the other way around. CYBERNOTES / 10 By Greg Thielmann BOOKS / 62 IN MEMORY / 64 INDEX TO ADVERTISERS / 74 AFSA NEWS / CENTER INSERT

THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS OREIGN ERVICE Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published FJ O U R N A L S monthly with a combined July/August issue by the American Foreign Service Association, a private, non-profit Editor Editorial Board organization. Material appearing herein represents the opinions of the writers and does not necessarily represent STEVEN ALAN HONLEY the views of the Journal, the Editorial Board or AFSA. Writer queries and submissions are invited, preferably by Senior Editor JUDITH BAROODY, SUSAN B. MAITRA CHAIRMAN e-mail. Journal subscription: AFSA Members - $13 included in annual dues; others - $40. For foreign surface mail, Associate Editor add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Washington, D.C., and at additional mail- SHAWN DORMAN MARK W. BOCCHETTI ing offices. Postmaster: Send address changes to Foreign Service Journal, 2101 E Street N.W., Washington, D.C. Ad & Circulation Manager STEPHEN W. BUCK 20037-2990. Indexed by Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited ED MILTENBERGER TATIANA C. GFOELLER manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of advertisements herein Business Manager does not imply the endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E- MIKKELA V. THOMPSON CAROL A. GIACOMO MAIL: [email protected]. WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service Art Director WILLIAM W. JORDAN CARYN SUKO SMITH LAURIE KASSMAN Association, 2004. Printed in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., Editorial Intern HOLLIS SUMMERS Washington, D.C. 20037-2990. DWIJEN JAYDEV MEHTA BILL WANLUND Advertising Intern TED WILKINSON WEI TAN Cover and inside illustrations by Adam Niklewicz

MARCH 2004/FOREIGN SERVICE JOURNAL 3

PRESIDENT’S VIEWS Iraq: A Place for Professionals

BY JOHN LIMBERT

It is altogether rebuild their society. We will also need fitting that we have Our work in Iraq is Middle East expertise and Arabic and devoted this issue of Kurdish language skills in a quality and the Journal to Iraq just more evidence of quantity that we have not required and what has hap- why we are proud of before. pened there. The • Resourcefulness. There’s no Iraq question is dif- what we do and why rule book for Iraq. Service there will ficult and divisive, as we do not tolerate require the maximum in improvisa- you will see in the Speaking Out col- tion, creativity and imagination. For a umn by John Brady Kiesling (p. 13), cheap shots from those long time communication was via one of our colleagues who resigned who would question satellite phones (that worked only out- because of disagreement with our doors) and via personal Hotmail and actions there. Iraq will be at the center our professionalism Yahoo accounts. Those constraints of our national political debate for a and our devotion to placed a high premium on self-reliance long time to come. and initiative. For example, what do For the Foreign Service, particular- service. you do when a dissident group of Shia ly our active-duty and retired col- from the hawzah (seminary) has occu- leagues in State and USAID, Iraq has pied part of a government ministry for also been an opportunity to demon- working there will require of us: which you are responsible? The FAM strate once again that we are ready to • Self-sacrifice. Service in Iraq is isn’t much help! And how do you build serve our country under the toughest sweaty, tedious and dangerous. The an effective team made up of Iraqis, conditions. In fact most of us needed hours are long and the distractions are members of the regular military, no such opportunity, having already few. An assignment there will disrupt reservists, Foreign Service personnel, proven ourselves in such settings as family life and, at the end of the day, contractors, and officials from multiple Beirut, Jerusalem, Kabul, Nairobi, will bring few rewards beyond the sat- agencies of the U.S. government? Port-au-Prince, Lagos, Khartoum, isfaction of having served the Very carefully. Bangui and Monrovia. Such places, American people under difficult and From AFSA’s point of view, our with their accompanying isolation, dangerous conditions. Will you get a work in Iraq is just more evidence of family separations and dangers, are promotion or a dream assignment out why we are proud of what we do and unfortunately becoming more and of Iraq service? Maybe, but don’t why we do not tolerate cheap shots more the norm of our careers. They count on it. from those who would question our may sound exotic, but the realities of • Experience and Expertise. professionalism and our devotion to living and working there are anything Iraq is difficult and complicated. The service. Our colleagues — active-duty, but glamorous. inter- and intra-communal disputes are retired, specialists, generalists and civil Staffing our mission in Iraq means the stuff of major headaches. Even servants — are working side by side more of the above for more of us. As it among fellow Arabs, Iraqis have the with the U.S. military and with like- has already, it will continue to demand reputation of being fractious, proud, minded Iraqis in carrying out the mis- the best from the Service. Specifically, violent and difficult to rule. Hume sion of rebuilding Ambassador Horan’s Horan’s article in this issue shows just “shattered mosaic.” They deserve our John Limbert is the president of the how vital experience, patience and (and the public’s) full support and American Foreign Service Association. understanding are in helping Iraqis respect. ■

MARCH 2004/FOREIGN SERVICE JOURNAL 5 nce again the FSJ Ois seeking works of fiction of up to 3,000 words for its annual summer fiction issue. Story lines or characters involving the Foreign Service are preferred, but not required. The top stories, selected by the Journal’s Editorial Board, will be published in the July/August issue; some of them will also be simultaneously posted on the Journal’s Web site. The writer of each story will receive an honorarium of $250, payable upon publication. All stories must be previously unpublished. Submissions should be unsigned and accompanied by a cover sheet with author’s name, address, telephone number(s) and e-mail address.

Please also note the following: • Authors are limited to two entries. • Entries will only be Deadline is April 1. No fooling. accepted by e-mail (preferably in the form of Word attachments Please send submissions (or questions) to and with the text copied Mikkela Thompson, Journal Business Manager, into the body of the at [email protected]. message). Art by Mikkela Thompson LETTERS

Disincentives for Iraq Service? claim more “bodies” in country? the target audience was less important Thank you to all State Department I encourage Secretary Powell to than absolute numbers of listeners, personnel serving in Iraq in spite of clarify whether those who serve in and that the way to build audience many disincentives. Iraq will receive at least equal promo- numbers was to go after Iran’s huge In 1994, tight budgets led to a tion and assignment opportunities as youth population. reduction in hardship and danger pay those who chose to avoid service at our The new radio service, Radio allowances for almost all posts, while most important diplomatic post. Farda, aims to attract Iran’s youths life became increasingly “unpleasant” Peter Rice with a computer-generated mix of cur- at these posts, resulting in fewer bid- FSO, retired rent American and Persian pop music, ders. In contrast, Washington, D.C., Sarasota, Fla. with occasional short features of spe- locality pay grew and grew, and is now cial interest to young people. The for- over 14 percent, an added deterrent to Broadcasting to Iran mat gives secondary place to serious bidding on all overseas posts, especial- Thomas Dine mentions Radio news and information. Though Dine ly hardship posts. Free Europe/Radio Liberty’s impor- reports that news content averages On Jan. 11, Senior Foreign Service tant new focus on broadcasting to eight hours daily, in reality most of it is personnel assigned overseas were slat- Iran, Iraq and Afghanistan (“Radio in hourly 10-minute segments spread ed to receive what appears to be a 14 Free Europe/Radio Liberty: Today out over 24 hours, with zippy head- percent permanent salary reduction. and Tomorrow,” January 2004). As lines and swoosh sounds meant to This may be corrected by press time. such, RFE/RL has a potentially signif- appeal to young people. It is modeled (Editor’s note: It has been corrected. icant role in U.S. public diplomacy after the Voice of America’s Arabic- See update in AFSA News.) toward countries that Dine says “are language Radio Sawa, perhaps in the Added to the potential financial now on the front line of the U.S.-led mistaken view that Iranian youths are disincentives noted above are ques- war against terrorism.” as anti-American as their Arab coun- tions about promotions and onward But while broadcasts to Iraq and terparts. They most certainly are not, assignments for those who serve in Afghanistan persist with the tradition- nor do they lack access to any amount Iraq. Might service in Iraq be viewed al RFE/RL fare of news and informa- of Western rock music. In any case, “unkindly” by future promotion tion to adult audiences, broadcasts to the new format has turned away much boards considering the disdain of Iran have taken a different direction. of the Persian Service’s more mature some (perhaps many) FSOs toward In December 2002 the Broadcasting and influential listeners, who disdain President Bush and the Iraq War? Board of Governors, which oversees all the pop music and truncated reports. Will those who serve in Iraq be U.S.-sponsored broadcasting abroad, The switch to a pop music format rewarded with choice NEA Bureau abruptly terminated RFE/RL’s Persian reflects the perception, expressed to assignments like Khartoum or Algiers? Service, which had been mandated by me by the BBG consultant who dictat- Are they silly to hope for onward Congress in 1998. Its focus on human ed the Farda format, that Iranian assignments to Canberra, Berlin, rights and political development in young people (like many elsewhere) Rome, Brussels or Paris? Iran, and Persian cultural program- lack sufficient tolerance for serious Employees respond to the incen- ming, modeled on a National Public discussion and information. That sim- tive system of their employer, and at Radio format, had won many loyal lis- ply is not the case. As an Iranian present it is unclear what the State teners among students and leaders author who frequently visits Iran told Department is doing to create incen- seeking change. Though this influen- NPR last year, “this radio program has tives for Iraq service. I understand tial listenership rivaled in size that of a lot of music and does sort of news that even interns are being sent to this the 60-year-old BBC Persian Service, bites ... [but] has come under some war zone: Is this to enable State to the BBG decided that the nature of criticism because Iran right now is at a

MARCH 2004/FOREIGN SERVICE JOURNAL 7 L ETTERS MARKETPLACE Web access to major advertisers. Go to www.afsa.org Click on Marketplace tab on the marquee Bukkehave stage in which it is a highly politicized from 1987 to 1998. From 1998 to www.bukkehave.com environment, and young people are 2002 he was the director of RFE/RL’s actually more interested in talking Persian Service.) Charles Smith Corp. Living www.SmithLiving.com about politics than Britney Spears.” At least some of the popularity the Out of Step on Death Penalty? Clements International BBG claims for Radio Farda can be Your October issue on the death www.clements.com attributed to initial curiosity surround- penalty would leave the impression Diplomatic Auto. Sales ing it and, more importantly, to the fact that we are totally out of step with civ- www.diplosales.com that it is broadcast over a powerful ilized world opinion. It therefore medium-wave transmitter that had not came as a surprise to me to find that Executive Club Suites www.execlubdc.com been available to the Persian Service public opinion in Britain, Australia (which had to broadcast on short- and perhaps other Western countries Georgetown Suites wave). But if rock music does in fact is not as uniformly anti-death as their www.georgetownsuites.com succeed in attracting big numbers of governments’ policies would suggest. GLIFAA Iranian youths, it must be asked if this A recent poll of British voters www.glifaa.org best serves the needs of U.S. public found that 62 percent back the death diplomacy and whether this effectively penalty for child murders and 54 per- Harry Jannette International www.jannetteintl.com aids democratic development in Iran. cent back it for the killing of an adult Of course we should be glad if some or child — not much different from Hirshorn Company, The Iranian youngsters who tune in for U.S. public opinion. The Conserv- www.hirshorn.com entertainment also catch some serious ative shadow Home Secretary recently Intelsat content, but we should lament the loss got headlines for backing the restora- www.intelsat.com of the more serious audience (includ- tion of the death penalty for serial mur- ing politically active students) who are ders. A recent poll in Australia also Laughlin Management www.century21laughlin.com much more likely to bring about found substantial public sentiment for democratic and human rights reforms. restoration of the death penalty. Long & Foster Because of their wish to maintain a David Ewing www.simunek.com consistent format, the BBG rejected Portsmouth, N.H. Marriott arguments that the station carry pro- www.marriott.com gramming that could serve both audi- Substantive or Functional? ences at different times. “Older” audi- I have been pleased to see so many NPCA www.rpcv.org ences, the BBG maintains, can still of my specialist colleagues take the tune in to Voice of America Persian, a time to write to the Foreign Service Oakwood point that ignores the latter’s rather Journal with their experiences and www.oakwood.com different broadcast purpose. thoughts about the status of specialists Promax (e-mail) Finally, an Iranian-born professor in the Foreign Service. I hope that [email protected] in Washington, who returned from a senior management is reading and visit to Iran this January, reports that taking note. My experience leads me Prudential Carruthers www.prudentialcarruthers.com he heard several times there the com- to believe that not much will change, ment that the sudden and inexplicable because the “generalists” have too Remington change in U.S. broadcasting reinforces much turf to protect. Let’s hope I’m www.remington-dc.com the belief that U.S. foreign policy is wrong. SDFCU whimsical and unreliable. In contrast, Here is an anecdote I find relevant www.sdfcu.org Iranians say, the BBC’s Persian Service regarding relations between “substan- WJDManagement has maintained its high broadcast stan- tive officers” and the rest of the gener- www. wjdpm.com dards for nearly 65 years. alists. My wife and I were leaving FSI Stephen C. Fairbanks on the shuttle bus one day several years Alexandria, Va. ago and sat down in front of two gen- For more information about (The writer was the State Depart- tlemen. While not trying to eavesdrop, advertisers in the Journal go to: www.afsa.org/marketplace ment Bureau of Intelligence and we could not help but overhear what Research’s political analyst on Iran they were saying. Their conversation

8 FOREIGN SERVICE JOURNAL/MARCH 2004 L ETTERS

went something like this: “Did you see the promotion list?” “Yes, and did you see that ‘so-and- so’ made it into the Senior Foreign Service?” “I did. You know, I just don’t understand why the department wastes SFS positions on admin types.” My wife and I knew the “so-and- so” who was promoted, so we found the conversation quite funny. It was a perfect example of how our political and economic cone “colleagues” view management and consular officers. Just imagine what they must think of the lowly specialist. Another illustration: I was serving in Guangzhou, China, where the consular section processed all of the immi- grant visa applications. Several people on the embassy shuttle we rode to and from work each day bandied about the term “substantive officer” when talking about themselves. After listening to this, one of the junior officers com- mented that if political and economic officers were to refer to themselves as , “substantive officers,” then admin and consular types should refer to themselves as “functional officers,” because they actually do something. The term “substantive officer” disappeared from the conversation after that suggestion. Kenneth R. Yeager Contracting/Executive Officer Regional Procurement Support Office Frankfurt ■

CORRECTION: Due to a production error, a line was inadvertently dropped from George Gedda’s article, “Latin America: Back on the Radar Screen?” (January FSJ, p. 57). The full sentence should read as follows: “Honduras and El Salvador each dis- patched 360 troops to assist the U.S.- led coalition in Iraq, while Nicaragua sent 120.” (The article is posted on our Web site, www.afsa.org.)

MARCH 2004/FOREIGN SERVICE JOURNAL 9 CYBERNOTES

Diplomats Challenge hey had [chemical and biological weapons] stockpiles, they fought Guantanamo Detentions in Tthe Iranians with it, and they certainly did use it on the Kurds. But Supreme Court what everyone was talking about is stockpiles produced after the end of Nineteen retired diplomats have the last (1991) Gulf War, and I don’t think there was a large-scale joined a lawsuit now before the U.S. production program in the 1990s. Supreme Court challenging the Bush administration’s Guantanamo Bay de- — David Kay, former head of the CIA’s Iraq Survey Group, Jan. 23, reuters.com tention system. Approximately 660 prisoners from over 40 countries have been held for more than two years with no In November, the U.S. Supreme Court of Appeals had earlier held that charges filed against them, no recourse Court agreed to hear an appeal on the plaintiffs — 12 Kuwaiti, two British to counsel and their every activity con- behalf of detainees who claim they and two Australian nationals — have trolled by officers of the executive should have the right to civilian court no recourse in U.S. courts because branch of the U.S. government. review of their detention. A D.C. their location in Cuba puts them out of the U.S. judiciary’s jurisdiction. Site of the Month: www.jpl.nasa.gov “The rulings have not gone unno- ticed abroad,” the diplomats state in If you find yourself annoyed with the current political quagmires or just with their “friend of the court” brief. humans in general, then make travel arrangements with NASA’s Jet Propulsion “Governments and international orga- Laboratory at www.jpl.nasa.gov, a user-friendly site filled with fun facts about nizations have taken offense. Other Mars. Aside from preplanning dream vacations on the Red Planet, astronomy nations have seen in them a license to buffs can follow the progress of the twin rovers, Spirit and Opportunity, and incarcerate their own citizens and oth- search for signs of life by investigating the many hi-resolution images of the ers with impunity.” Martian landscape. The diplomats argue that the Should digital images of Mars not tickle your fancy, a “bird’s-eye” view of Guantanamo system is causing grave Earth, our cozy solar system and the rest of the final frontier are also at your fin- problems in America’s foreign rela- gertips. The site is rich in background information on the science and technol- tions. What is at stake, they say, is ogy of space exploration for both the layman and expert, and also features events America’s greatest diplomatic asset such as online lectures on biology, physics, and computer science. There is a and that which has made the U.S. an lively kids’ section too. exemplary model for others — name- Each section contains updates about new discoveries and a comprehensive ly, the constitutional promise that no multimedia presentation. For example, in the Solar System portion, you can person may be denied liberty by arbi- “ride along with three of NASA’s most exciting robotic missions, or build your trary government action. own exploratory spacecraft” by clicking on the “Solar System Experience” tab The Bush administration designat- under Multimedia. Before building your spacecraft, you may also brush up on ed the Guantanamo detainees “unlaw- your interplanetary navigational skills by reviewing the “Basics of Space Flight” ful combatants” in the war on terror- under the Education tab on the main page. ism. They are therefore not entitled to JPL, managed by the California Institute of Technology for NASA, under- protection under the Geneva Conven- takes the robotic exploration of the solar system for NASA and manages the net- tions as prisoners of war, and accord- work of telescopes on the ground and in space studying distant galaxies and ing to the laws of war could be held learning more about the origins of the universe. JPL also manages the NASA until “the end of hostilities,” as Human satellites monitoring and studying planet Earth. Rights Watch explains in a background — Dwijen Jaydev Mehta, Editorial Intern review (http://www.hrw.org/english /docs/2004/01/09/usdom6917.htm).

10 FOREIGN SERVICE JOURNAL/MARCH 2004 CYBERNOTES

The administration is planning to try A brief on behalf of 175 members to use SERVE in the November 2004 detainees before specially constituted of the British Parliament has also been elections,” said a DOD spokeswoman military commissions. filed with the Supreme Court. (www.nytimes.com). “We made this In a related development, five uni- decision in view of the inability to formed military lawyers assigned to Internet Voting Pilot ensure legitimacy of votes, thereby defend Guantanamo prisoners have Abruptly Canceled bringing into doubt the integrity of the also filed a brief with the Supreme On Feb. 5 the Defense Depart- elections results.” Court (www.nytimes.com). In their ment abruptly cancelled plans that Two weeks earlier, several mem- 30-page brief, the lawyers argue that would have enabled 100,000 of the bers of an expert panel set up by the President Bush has created “a legal estimated six million American voters Pentagon to review the project had black hole.” The military brief does living abroad to cast their votes online issued a report concluding it should be not take a position on the issue of in the 2004 presidential election. halted. “There really is no good way to denial of habeas corpus to people The Secure Electronic Registration build such a voting system without a detained at Guantanamo, but con- and Voting Experiment, or SERVE, is radical change in overall architecture tends that if they are put before a tri- a congressionally-mandated program of the Internet and the PC, or some bunal as now envisioned, the president developed by the DOD’s Federal unforeseen security breakthrough,” will have overstepped his constitution- Voting Assistance Program (www. the report’s authors argue. al authority as commander-in-chief. fvap.gov). Expanded from a success- Written by four of the 10 panelists, On Jan. 14 the Lawyers Committee ful pilot project that involved less than the report was at first dismissed by the for Human Rights (www.human 100 voters in 2000, SERVE was ready Pentagon as a “minority report.” Five rightsfirst.org), representing Amnes- to roll with seven states and 50 coun- of the six other panel members, polled ty International, Human Rights Watch ties on board and a dedicated Web informally, did not recommend clos- and a broad array of nongovernmental site (www.serveusa.gov/public/aca. ing. Another outside reviewer termed legal and human rights organizations, aspx). the report the “professional paranoia also filed an amicus brief arguing, Still under development, SERVE of security researchers.” among other things, that the Consti- functions in much the same way as e- The decision memorandum from tution does indeed entitle the Guan- commerce systems, with layers of Deputy Defense Secretary Paul D. tanamo detainees to due process security including secure military Wolfowitz stated that efforts would (http://www.humanrightsfirst.org/ servers, digital certificates and dual- continue to find ways to cast ballots us_law/14077_freiman_proofs. key encryption schemes. electronically for overseas Americans, pdf). “The department has decided not and that testing and development would continue with SERVE. 50 Years Ago... The Strategic Stakes in If Foreign Service officers themselves are inert or Africa indifferent to the practical needs of an effective Foreign Africa’s strategic significance for Service and especially to their standing with the U.S. foreign policy was highlighted in American community, even the most sympathetic late January, on the eve of renewed six- Secretary of State and the most kindly departmental staff will not be party talks in Beijing over North able to develop conditions most of us would want to see prevail. Korea’s nuclear weapons program, by the news that Pyongyang has offered — Amb. Robert Murphy (Remarks at the January 1954 AFSA Luncheon), ballistic missile technology to Nigeria FSJ, March 1954. (www.allafrica.com). Nigeria’s spokesman Onukaba Ojo

MARCH 2004/FOREIGN SERVICE JOURNAL 11 C YBERNOTES quickly stated that Abuja’s talks with from South Africa to countries in West breaking settlement of the devastat- Pyongyang should not worry Washing- and Central Africa that are becoming ing civil war in Sudan is still appar- ton. “I’m sure that Nigeria is not incubators for terrorism. ently on track. dreaming of nuclear weapons at all, In “The Terrorist Threat in Africa,” But Lyman and Morrison state that just missile technology,” he said. Lyman, now director of Africa Policy the administration has failed to recog- Nigeria and North Korea have cooper- Studies at the Council on Foreign nize the other, less visible threats on ated in the defense sector for years. Relations (www.cfr.org), and co- the continent, and instead “reflexively Nigeria, which provides 7 percent of author J. Stephen Morrison, director defines conflicts and crises in Africa in America’s oil, is Africa’s most populous of the Africa Program at the Center narrow humanitarian terms — as it country and its military is the most for Strategic and International Studies did with Liberia in the summer of powerful in West Africa. (www.csis.org), urge a fundamental 2003.” In addition, budgetary con- But, as former U.S. ambassador to correction in U.S. Africa policy. The cerns have been allowed to “trump” South Africa and Nigeria Princeton heart of the problem, the authors say, vital support for multilateral peace Lyman points out in a critique of U.S. is the failure to appreciate the fact that operations and even antiterrorism Africa policy in Foreign Affairs U.S. interests in Africa are not only programs, and place support for eco- (January-February 2004), Nigeria is humanitarian but also fundamentally nomic and social development in also a country on the verge of blowing strategic in nature. Africa in jeopardy. apart, as a result of “a potent mix of Following the bombings in Dar es The authors also suggest that communal tensions, radical Islamism, Salaam, Nairobi and Mombasa, the bureaucratic obstacles to a coherent and anti-Americanism [that] has pro- Bush administration declared the Africa policy in Washington, such as duced a fertile breeding ground for greater Horn of Africa a front-line the State Department’s separation of militancy.” And Nigeria is just the region in the global war on terror, and North Africa and sub-Saharan Africa, “most troubling” of a number of cases what could prove to be a ground- need to be addressed. ■

12 FOREIGN SERVICE JOURNAL/MARCH 2004 SPEAKING OUT U.S. Diplomacy and Other Sacrifices

BY JOHN BRADY KIESLING

new vice consul quickly learns disagreed, more politely than I on the visa line that people tell deserved, but at least obviously. Aus what they think we want to After 9/11, though What is less obvious is the State hear. When I was a diplomat, for- Department’s own view. Perhaps eigners politely agreed with U.S. poli- diplomacy became those of us who had winced at the cy. They lied, but they meant well. anger and humiliation of our Middle Now that I am a dissident, my inter- more vital than ever Eastern interlocutors assumed locutors take a much less polite view America’s lack of standing there didn’t of the U.S. role in the world. I must to American security, matter, that experience elsewhere had summon up my former Foreign confirmed our prowess at democracy Service colleagues by face and name our reaction left little building. Or perhaps those of us who to remind myself of what I once knew had tried with little success to incul- instinctively: that even the most ambi- room for allies. cate free elections among our docile tious and unscrupulous of us work for new friends in the former Soviet bloc a benevolent superpower. believed it would be easier in Iraq at My new dissident friends shake gunpoint? No, the State Department their heads at the notion of American had ample expertise to know — even benevolence. But they are wrong. if it was a lonely and unrewarding Nearly a year has passed since March interests above the interests of the knowledge — that Iraq would be an 20, 2003, a year that has blown to hell American people they were sworn to expensive fiasco. We chose, however, any illusion that we had launched our serve. To confound that logic, the to keep saying what the president remaking of Iraq based on a rational, Bush administration has made a wanted to hear. selfish, cost/benefit calculation of rhetorical leap. No longer are Ameri- Newt Gingrich complained last American interests. Was it an inno- cans foreign policy “realists” bound by summer that U.S. diplomacy failed to cent mistake? Efforts to predict the sterile calculation. Now we are heav- convince our allies because we were costs — Army Chief of Staff Eric ily-armed Wilsonian idealists, doing disloyal to President Bush. The oppo- Shinseki’s honesty about the troop lev- battle with a paean to universal site is true: because we were loyal to els needed to maintain security in democracy on our lips. the president and our careers, we Iraq, attempts by Congress to coax out While still an FSO in Athens, I failed the American people. Repack- of the White House even a sketchy made myself deliberately offensive to aging the administration’s populist estimate of occupation expenses, an invited pundit from the American rhetoric for foreign audiences is a safe INR’s analyses of the likely Iraqi and Enterprise Institute. I told him in bureaucratic strategy. It is not world reactions to an invasion — all October 2002 that no one who had enough, and it never was, to lead a were stifled brutally enough to show ever spoken to Arabs or been involved skeptical planet. Did any of us warn the administration’s foreknowledge in U.S. democracy-building efforts the president that the mantle of that accurate accounting would render could possibly believe that America “Leader of the Free World” does not the war too costly. But the war was had the capability forcibly to democ- come automatically with the office? launched nevertheless. ratize Iraq and then Iran and Syria at He will never wear that mantle now, That decision would suggest that any cost we could afford. I said he not on a planet convinced, as the polls the people who ordered the war put and his friends who advocated this show, that the character and ideology their own political or bureaucratic war were living in a dream world. He of George W. Bush make the world a

MARCH 2004/FOREIGN SERVICE JOURNAL 13 S PEAKING O UT

Repackaging the administration’s populist rhetoric for foreign audiences is a safe bureaucratic strategy — but not enough to lead a skeptical planet.

crueler and more dangerous place. We undervalue to our detriment the skills required for successful diplomacy, and the time they take to learn. Over 20 awkward years, I built the relationships with foreign diplomats, journalists and politicians that allowed me to feel I was earning my pay. As I rose in the ranks, the out- look seemed bleaker. I thought we were swindling ourselves with our mantra of “management” over diplomacy. Should the Foreign Service really exchange its role as the overseas eyes and ears and brains and voice of America for a modest subsis- tence as concierge? Five years remained in my promotion window. I was too lazy or proud to learn the open assignments game properly, but not stellar enough to coast along without it. And so I was looking forward to being posted to Kabul via Dari-language training, and to one more posting before retirement at age 50. Once the Bush administration took the reins, instructions to posts challenged the agreeable notion I had formed under George Bush the elder and Bill Clinton, that America was the leader of an evolving international system based on rules we our-

14 FOREIGN SERVICE JOURNAL/MARCH 2004 S PEAKING O UT live better.

brand new luxury high rise : fully appointed one, one bedroom dens and two bedroom corporate suites : state of the selves had written and blessed. Our art fitness and business centers : heated outdoor lap pool : betrayal of the International Criminal custom made mahogany furniture : fully equipped kitchens : luxury towels and linens : soft, firm or hypoallergenic pil- Court was a shameful blot on low selection : weekday club breakfast serving Starbucks® American history and an unmistak- Coffee : afternoon Tazo® Tea : digital premium cable and high speed internet : 27” and 20” sony wega tv and dvd : able sign that George W. Bush had sony cd stereo : free local phone : on-site management, rejected his father’s nobler vision. His maintenance, housekeeping : concierge services : walking distance to ballston common mall, ballston and virginia populism was read by me as cow- square metro stops ardice, but by the world as arrogance. After 9/11, though diplomacy became more vital than ever to American security, our reaction left little room for allies. The arrival of a new U.S. ambassador confirmed this change of attitude. He understood Greece as well as he thought he needed to, and showed himself adept at the contemptuous posturing that buys korman communities arlington tennis dates with Defense Secretary CORPORATE SUITES Rumsfeld. arlington, va 880 north pollard street 866.korman.4 : kormancommunities.com The Path to War In the late summer of 2002 came the certainty that we had embarked on war with Iraq. The neoconservatives surfaced to reassure unhappy ordinary conservatives, for whom loyalty to allies meant something, that the U.N. is an organization by and for corrupt wimps, and that international legitimacy is for sissies too squeamish to wield power. We liberals had no equivalent fiction to comfort us — history makes brutally clear the trajectory of power politics based on ignorance and con- tempt for foreigners. My draft Dissent Channel message seemed futile sent from Athens. I was not the type to instigate insur- rection. So I wrote myself off as a time-serving coward. Then Diplo- matic Security’s pink-slip crackdown saved me. I had been careless enough at times over my career: classified documents left in out-boxes, an unlocked safe or hard drive. But lies had been told about my commitment to security, and the injustice festered. My ambassador made clear that my fight to keep my security clearance was purely my own. In a moment of clarity — or wounded vanity, if you

MARCH 2004/FOREIGN SERVICE JOURNAL 15 S PEAKING O UT

Efforts to predict the costs of the war were stifled brutally enough to show the administration knew an accurate accounting would render it too costly.

prefer — I recognized that I had something better to fight for than a career. My finest compliment came from a Greek Foreign Ministry official. He gave a copy of my resignation letter to his 12-year-old son, because he wanted the boy to recognize the dignity of a profession that sometimes demand- ed such gestures. I was surprised — European diplomats seldom drop the mask of cynical careerism. Support from American colleagues was less surprising. We still have faith in our calling. I wish that I had had the bureaucratic skills to do something meaning- ful within the system. That would have been heroic, and the Foreign Service needs its heroes. Ours are now engaged feverishly across Iraq. They will do some good, but the stakes for us and for the warring Iraqi factions are too asymmetrical. My friends will return, I hope, prepared to tell the truth about the limits of U.S. power. There is a Washington bureaucratic universe in which American omnipotence is not just a dangerous fantasy. There, the solution to every problem is a budget line, a wiring dia-

16 FOREIGN SERVICE JOURNAL/MARCH 2004 S PEAKING O UT columbia plaza apartments gram, a stream of targeting data, and Capital Living With Comfort and Convenience someone’s electoral calendar. In that 24 Hour Fitness brutally competitive universe, for- Center eigners are playing cards of limited value. In that universe, the Iraq war was a triumph of power politics. I am not qualified to say when and how the State Department lost the bureau- Toll Free 1-888-240-5131 cratic struggle for the president’s ear. Utilities Included We lost, and we chose to be good Complimentary Voice Mail Beautiful and Spacious: losers. Courtyard Style Plaza Polished Hardwood Floors Efficiency $1,100 - $1,250 Private Balconies 1 Bedroom 1,400 - 1,700 In the Real World Huge Walk-in Closets 2 Bedroom 2,100 - 2,700 But there is also a real universe, a more subtle one, in which the real, 2400 Virginia Ave., N.W 24 Hour Front Desk Washington, D.C., 20037 permanent interests of the American Garage Parking Avaliable Tel: (202) 293-2000 people must be defended. In this Controlled Access E-mail: [email protected] universe, humiliation and powerless- Potomac River Views Minutes to Fine Dining ness are a cause of terrorism, not its Newly Renovated Kitchens Office Hours: Mon. - Fri. 8:00 AM-5:30 PM cure. Here, when we put forth our Sat 10:00 AM-4:00 PM power, states go catastrophically limp, Directly across the street from Main State, minutes to Kennedy Center and Georgetown as Iraq went limp. In this universe, where we cannot truly democratize or profitably blackmail even the most servile client state, it is not the State Department but America that has suffered a costly defeat in Iraq. Global threats require global alliances. Sacrificing allies to domestic politics is bad policy. The State Department used to fight and occa- sionally win policy battles in the corridors of Washington on behalf of our allies. Perhaps my limited experience misleads me, and we do not really crumple at each jeer of “clientitis.” But even by the crudest ancient measure of power, the ability to help our friends and harm our foes, we have failed to reward British Prime Minister Tony Blair for his loyalty to us. Much less can we reliably identi- fy our friends in Iraq and bolster them against our foes. Any respect for the Foreign Service is earned by accurate understanding of the real universe and honest recommendations about real human beings. By admitting the obvious about Iraq, we make ourselves stronger. We cannot adopt

MARCH 2004/FOREIGN SERVICE JOURNAL 17 S PEAKING O UT Need to Sound the Alarm About Something?

Why not write truth is the vision and integrity of the a “Speaking I am not qualified to say president. When that protection Out” fails us, the most we can hope is that column for the when and how the State some of the cost of misusing U.S. Foreign diplomacy will be borne by those Service Department lost the responsible for it. But there is no Journal? valid option of ceding our expert “Speaking Out” is your forum to bureaucratic struggle judgment to others less qualified, or advocate policy, regulatory or speaking less than the truth about statu- for the president’s ear. the planet. ■ tory changes to the Foreign Service. These can be based on John Brady Kiesling entered the personal experience with an injustice or convey your hard-won Foreign Service in 1983, serving in Tel Saddam’s methods, or even Sharon’s, insights into a foreign affairs-relat- Aviv, Casablanca, Washington,Yerevan ed issue. at a price America is willing to pay. and Athens (twice), the second time as Writers are encouraged to take Without security, all our well-mean- political counselor. He resigned from ing reconstruction will be swept strong stands, but all factual the Service in February 2003 in protest away. Let us learn from history that claims must be supported and doc- of the impending war with Iraq. A umented. Submissions should be no one will successfully govern Iraq approximately 1,500 words in until they are armed with the legiti- writer and lecturer, he is currently a vis- iting professor of Hellenic studies at length and should be sent via e- macy that comes from driving us out. mail to [email protected]. Our protection in speaking the Princeton University.

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F OCUSON I RAQ

IRAQ, ONE YEAR LATER: EDITOR’S INTRODUCTION

BY STEVEN ALAN HONLEY

n Wednesday evening (U.S. sion to resign from the Foreign Service in time), March 19, 2003, the protest of the Bush administration’s drive to war. United States began “Operation (Two other FSOs who did the same, John Brown Iraqi Freedom” by bombing a and Ann Wright, contributed Speaking Out building in which Saddam columns of their own to our September 2003 Hussein was thought to be hid- issue, which you can read by going to ing. The dictator’s regime crumbled almost www.afsa.org.) Oinstantly (though it took nearly nine months to Among many provocative observations capture him), and the initial euphoria over the Kiesling makes, perhaps this one merits espe- ease of his overthrow led President Bush to cially close attention: “I am not qualified to say declare an end to “major hostilities” on May 1. when and how the State Department lost the Lamentably, it has become all too clear that bureaucratic struggle for the president’s ear. We military victory was just the beginning of the lost, and we chose to be good losers.” struggle in Iraq, notwithstanding the Bush That bureaucratic struggle is at the heart of administration’s assurances. As we go to print in an article that originally appeared in the New early February, American deaths have already York Times Sunday magazine last November, the exceeded 500 and continue to inch up almost bulk of which we reprint in this issue: “Blueprint daily, and we have pumped many billions of dol- for a Mess” (p. 22). Journalist David Rieff con- lars into the effort. Most worrying of all, the cludes that “The lack of security and order on overall security situation remains unsettled just the ground today is in large measure a result of as the Coalition Provisional Authority prepares decisions made and not made in Washington to turn over power to the Iraqi Transitional before the war started, and of the specific Administration on July 1 — the date Embassy approaches toward coping with postwar Iraq Baghdad is scheduled to open its doors. undertaken by American civilian officials and Our coverage actually begins with this military commanders in the immediate after- month’s Speaking Out column, “U.S. Diplomacy math of the war.” and Other Sacrifices” (p. 13), by John Brady Rieff documents just how perceptive and Kiesling, who likely needs no introduction to well-informed State’s analysts were about what most FSJ readers. In this column, he discusses was likely to follow U.S. intervention. The the factors that underlay his February 2003 deci- Future of Iraq Project drew on a wide range of

20 FOREIGN SERVICE JOURNAL/MARCH 2004 expertise, both within David Rieff documents just find the weapons, has the Foreign Service and testified to Congress that elsewhere, to correctly how perceptive and well- “We were almost all predict most develop- wrong.” President Bush ments of the past year. informed State’s analysts were has now backed an inde- In particular, the pan- pendent review of the elists urged beefed-up about what would follow U.S. intelligence regarding security to counter the Iraq’s alleged WMD, wave of criminal activity intervention in Iraq. though just how it will be in the period immediate- conducted remains to be ly following the over- worked out. throw of the Ba’thist regime. They also warned For an insider’s perspective on what the intel- of the inherent difficulty of establishing democ- ligence community was reporting about the situ- racy in a deeply riven society with no experience ation in Iraq prior to the war, we offer Greg of power-sharing. Thielmann’s “From Intelligence Analyst to The Coalition Provisional Authority has been ‘Citizen Watchdog’” (p. 44). Thielmann, a 25- grappling with these and many other thorny year Foreign Service veteran, was acting director issues, first under Gen. Jay Garner and then of the Strategic, Proliferation and Military Amb. Jerry Bremer. Amb. Hume Horan, who Affairs Office in State’s Bureau of Intelligence worked at the CPA (along with many other ded- and Research when he retired in September icated personnel from State and elsewhere) for 2002. He paints a damning picture of how the six months last year, gives us his assessment of adminstration exploited “the fear of a nation still the post-Hussein era in “Restoring A Shattered traumatized by 9/11 with unjustified specula- Mosaic” (p. 29). He is considerably more opti- tions that Iraq could have nuclear weapons with- mistic about the country’s prospects than many in months, and ominous warnings that the first commentators, though he is careful to acknowl- smoking gun could be in the form of a mush- edge the many obstacles that lie ahead. room cloud — assertions that had no basis in the One of the Bush administration’s justifica- sober assessments of intelligence professionals.” tions for going to war has been the conviction Many critics of the current administration’s that Iraq’s democratization would serve as a handling of Iraq, both within State and else- model for its neighbors and the larger Arab where, have cited the damage done to U.S. rela- world. But the Carnegie Endowment’s Marina tions with allies and, indeed, much of the world. Ottaway offers a decidedly cautionary answer to Egyptian journalist Khaled Abdulkareem gives the question, “Can the United States Export us a view of what that has meant in the Middle Democracy to Iraq?” (p. 38). East in “Operation Iraqi Freedom: The Arab The administration’s main rationale for Reaction” (p. 50). attacking Iraq, however, was its supposed pos- Ultimately, no matter how one assesses the session of weapons of mass destruction and administration’s record in Iraq over the past year, intent to use them against American interests. it will soon be largely up to State, USAID, and However, no Iraqi WMD stockpiles have yet the other foreign affairs agencies to make U.S. turned up, and David Kay, who resigned on Jan. policy there work. That will be no easy task, but 23 from his position as head of the U.S. effort to fortunately, the many Foreign Service professionals who have volunteered for duty in Iraq Steven Alan Honley is the editor of the Foreign have already been demonstrating the requisite Service Journal. An FSO from 1985 to 1997, he dedication and creativity. We are therefore served in Mexico City, Wellington and pleased to conclude our coverage with some of ■ Washington, D.C. their stories in “On the Ground” (p. 54). Adam Niklewicz

MARCH 2004/FOREIGN SERVICE JOURNAL 21 F OCUSON I RAQ

BLUEPRINT FOR A MESS Adam Niklewicz

THE WAR IN IRAQ WAS A TRIUMPH OF PLANNING AND IMPLEMENTATION, BUT THE POSTWAR SITUATION IS A MESS. HERE’S HOW IT HAPPENED.

BY DAVID RIEFF

istorically, it is rare that a warm welcome is extended to an occupying military force for very long, unless, that is, the postwar goes very smoothly. And in Iraq, the postwar occupation has not gone smoothly.H … Despite administration claims, it is simply not true that no one could have predicted the chaos that ensued after the fall of Saddam Hussein. In fact, many officials in the United States, both military and civilian, as well as many Iraqi exiles, predicted quite accurately the perilous state of things that exists in Iraq today. … What went wrong is that the

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voices of Iraq experts, of the State The Iraqi National In the mid-1990s, Chalabi Department almost in its entirety attended conferences on a post- and, indeed, of important segments Congress became not Hussein Iraq organized by Perle and of the uniformed military were sponsored by the American Enter- ignored. As much as the invasion of simply an Iraqi exile prise Institute. There he met a Iraq and the rout of Saddam group of neoconservative and con- Hussein and his army was a triumph group of which Chalabi servative intellectuals who had of planning and implementation, served in the administrations of the mess that is postwar Iraq is a was a leader, but a kind of Ronald Reagan and George H.W. failure of planning and implementa- Bush, including Dick Cheney, tion. government-in-waiting Donald Rumsfeld and Paul Wolfowitz, who later formed the Getting in Too Deep with with Chalabi at its head. core group that would persuade Chalabi President George W. Bush to go to In the minds of the top officials war with Iraq. … of the Department of Defense during the run-up to the In the mid-1990s Chalabi fell out of favor with the war, Iraq by the end of [2003] would have enough oil CIA and the State Department, which questioned his flowing to help pay for the country’s reconstruction, a popular support in Iraq and accused him of misappropri- constitution nearly written and set for ratification and, ating American government funds earmarked for armed perhaps most important, a popular new leader who resistance by Iraqi exile groups against Saddam Hussein. shared America’s vision not only for Iraq’s future but also He remained close with Perle and Wolfowitz, however, as for the Middle East’s. well as with other neoconservative figures in Washington, Ahmad Chalabi may on the face of it seem an odd fig- including Douglas Feith, a former aide to Perle. … ure to count on to unify and lead a fractious postwar Chalabi lobbied senators and congressmen to support nation that had endured decades of tyrannical rule. His action against Saddam Hussein, and a coalition of neo- background is in mathematics and banking, he is a secu- conservatives, including Rumsfeld, Wolfowitz and Perle, lar Shiite Muslim, and he had not been in Baghdad since sent a letter to President Clinton calling for a tougher the late 1950s. But in the early 1990s he became close to Iraq policy. Together they succeeded in persuading the Richard Perle, who was an assistant secretary of Defense Republican-controlled Congress in 1998 to pass the Iraq in the Reagan administration, and in 1992, in the wake of Liberation Act, signed into law by President Clinton, a the first Gulf War, he founded the Iraqi National piece of legislation that made regime change in Iraq the Congress, an umbrella organization of Iraqi opposition official policy of the United States. groups in exile. After George W. Bush assumed the presidency, Chalabi’s Washington allies were appointed to senior David Rieff is an American writer and policy analyst. positions in the defense establishment. … (Wolfowitz, His early work concerned Third World immigration to Perle and Chalabi all refused or did not respond to the United States. More recently, he has covered wars requests to be interviewed for this article.) … and humanitarian emergencies in the Balkans, Central Planning began not only for the war itself but also for Africa, Central Asia and the Caucasus. He is the author its aftermath, and various government departments and of six books, and a frequent contributor to The New York agencies initiated projects and study groups to consider Times, The Atlantic Monthly, Los Angeles Times, and the questions of postwar Iraq. … Foreign Affairs. He is a contributing editor to New Chief among these agencies was the so-called Office Republic (Washington), Los Angeles Times Book of Special Plans, set up after Sept. 11, 2001, reporting to Review, and Letras Libres (Mexico City). The article Douglas Feith in the Pentagon. It was given such a vague excerpted here was originally published in The New York name, by Feith’s own admission, because the administra- Times Magazine on Nov. 2, 2003, copyright 2003, David tion did not want to have it widely known that there was Rieff. Reprinted by permission. a special unit in the Pentagon doing its own assessments

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of intelligence on Iraq. “We didn’t think it was wise to shadow government. The State Department managed create a brand-new office and label it an office of Iraq to win this particular battle, and no government in exile policy,” Feith told the BBC in July. was set up. … Chalabi provided the Office of Special Plans with There was also a broader disagreement about whether information from defectors ostensibly from Saddam and how quickly Iraq could become a full-fledged Hussein’s weapons programs — defectors who claimed democracy. The State Department itself was of two to be able to establish that the Iraqi dictator was actively minds on this question. One prewar State Department developing weapons of mass destruction. report, echoing the conventional wisdom among Through such efforts, Chalabi grew even closer to Arabists, asserted that “liberal democracy would be diffi- those planning the war and what would follow. To the cult to achieve” in Iraq and that “electoral democracy, war planners, the Iraqi National Congress became not were it to emerge, could well be subject to exploitation by simply an Iraqi exile group of which Chalabi was a leader, anti-American elements.” The CIA agreed with this but a kind of government-in-waiting with Chalabi at its assessment; in March 2003, the agency issued a report head. The Pentagon’s plan for postwar Iraq seems to that was widely reported to conclude that prospects for have hinged, until the war itself, on the idea that Chalabi democracy in a post-Hussein Iraq were bleak. In con- could be dropped into Baghdad and, once there, effect a trast, the neoconservatives within the Bush administra- smooth transition to a new administration. … tion, above all within the Department of Defense, consistently asserted that the CIA and the State Department Shutting Out State were wrong and that there was no reason to suppose that In the spring of 2002, as support for a war to oust Iraq could not become a full-fledged democracy, and rel- Saddam Hussein took root within the Bush administra- atively quickly and smoothly. tion, the State Department began to gather information But Warrick, who has refused to be interviewed since and draw up its own set of plans for postwar Iraq under the end of the war, was, according to participants in the the leadership of Thomas Warrick, a longtime State project, steadfastly committed to Iraqi democracy. Feisal Department official who was then special adviser to the Istrabadi, an Iraqi-American lawyer who also served on department’s Office of Northern Gulf Affairs. This effort the project’s democratic principles group, credits Warrick involved a great number of Iraqi exiles from across the with making the Future of Iraq Project a genuinely political spectrum, from monarchists to communists and democratic and inclusive venture. Warrick, he says, “was including the Iraqi National Congress. fanatically devoted to the idea that no one should be Warrick’s Future of Iraq Project, as it was called, was allowed to dominate the Future of Iraq Project and that an effort to consider almost every question likely to con- all voices should be heard — including moderate Islamist front a post-Hussein Iraq: the rebuilding of infrastruc- voices. It was a remarkable accomplishment.” ture, the shape Iraqi democracy might take, the carrying In fact, Istrabadi rejects the view that the State out of transitional justice and the spurring of economic Department was a holdout against Iraqi democracy. development. … “From Colin Powell on down,” he says, “I’ve spent hun- There were a number of key policy disagreements dreds of hours with State Department people, and I’ve between State and Defense. The first was over never heard one say democracy was not viable in Iraq. Chalabi. While the Pentagon said that a “government Not one.” in exile” should be established, presumably led by Although Istrabadi is an admirer of Wolfowitz, he says Chalabi, to be quickly installed in Baghdad following that the rivalry between State and Defense was so intense the war, other Iraqis, including the elder statesman of that the Future of Iraq Project became anathema to the the exile leaders, Adnan Pachachi, insisted that any Pentagon simply because it was a State Department pro- government installed by United States fiat would be ject. “At the Defense Department,” he recalls, ’’we were illegitimate in the eyes of the Iraqi people. And the seen as part of ‘them.’” … State Department, still concerned that Chalabi had The Future of Iraq Project did draw up detailed reports, siphoned off money meant for the Iraqi resistance and which were eventually released to Congress last month and that he lacked public support, opposed the idea of a made available to reporters for The New York Times. …

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But the Defense Department, The memory of this Although ORHA simply didn’t which came to oversee postwar plan- have the time, resources or expertise ning, would pay little heed to the looting is like a bone in in early 2003 to formulate a coher- work of the Future of Iraq Project. ent postwar plan, Feith and others Gen. Jay Garner, the retired Army Iraq’s collective throat in the Defense Department were officer who was later given the job of telling a different story to Congress. leading the reconstruction of Iraq, and has given rise to In testimony before the Senate says he was instructed by Secretary Foreign Relations Committee on of Defense Rumsfeld to ignore the conspiracy theories about Feb. 11, shortly before the begin- Future of Iraq Project. ning of the war, Feith reassured the Garner has said that he asked for American motives assembled senators that ORHA was Warrick to be added to his staff and “staffed by officials detailed from that he was turned down by his supe- and actions. departments and agencies through- riors. Judith Yaphe, a former CIA out the government.” Given the analyst and a leading expert on Iraqi freeze-out of the State Department history, says that Warrick was “blacklisted” by the officials from the Future of Iraq Project, this description Pentagon. “He did not support their vision,” she told me. hardly encompassed the reality of what was actually tak- And what was this vision? ing place bureaucratically. Yaphe’s answer is unhesitant: “Ahmad Chalabi.” But it Much of the postwar planning that did get done went further than that: “The Pentagon didn’t want to before the invasion focused on humanitarian efforts — touch anything connected to the Department of State.” Garner’s area of expertise. … None of the senior American officials involved in the Garner told me that while he had expected Iraqis to Future of Iraq Project were taken on board by the loot the symbols of the old regime, like Hussein’s palaces, Pentagon’s planners. … he had been utterly unprepared for the systematic looting and destruction of practically every public building in Too Little Planning, Too Late Baghdad. In fairness to Garner, many of the Iraqis The Office of Reconstruction and Humanitarian I spoke with during my trips were also caught by Assistance was established in the Defense Department, surprise. … under General Garner’s supervision, on Jan. 20, 2003, One reason for the looting in Baghdad was that there just eight weeks before the invasion of Iraq. Because were so many intact buildings to loot. In contrast to their the Pentagon had insisted on essentially throwing out strategy in the first Gulf War, American war planners had the work and the personnel of the Future of Iraq been careful not to attack Iraqi infrastructure. This was Project, Garner and his planners had to start more or partly because of their understanding of the laws of war less from scratch. Timothy Carney [a former ambas- and partly because of their desire to get Iraq back up and sador to Haiti and Sudan], who served in ORHA under running as quickly and smoothly as possible. They seem Garner, explains that ORHA lacked critical personnel to have imagined that once Hussein fell, things would go once it arrived in Baghdad. “There were scarcely any back to normal fairly quickly. But on the ground, the Arabists in ORHA in the beginning” at a senior level, looting and the violence went on and on, and for the most Carney says. “Some of us had served in the Arab world, part American forces largely did nothing. but we were not experts, or fluent Arabic-speakers.” Or rather, they did only one thing — station troops to According to Carney, Defense officials “said that protect the Iraqi Oil Ministry. This decision to protect Arabists weren’t welcome because they didn’t think only the Oil Ministry — not the National Museum, not Iraq could be democratic.” the National Library, not the Health Ministry — proba- Because of the battle between Defense and State, bly did more than anything else to convince Iraqis uneasy ORHA, which Douglas Feith called the “U.S. govern- with the occupation that the United States was in Iraq ment nerve center” for postwar planning, lacked not only only for the oil. “It is not that they could not protect information and personnel but also time. … everything, as they say,” a leader in the Hawza, the Shiite

MARCH 2004/FOREIGN SERVICE JOURNAL 25 F OCUS

religious authority, told me. “It’s that they protected almost inevitable. “We knew what the tactical end state nothing else. The Oil Ministry is not off by itself. It’s sur- was supposed to be at the end of the war, but we were rounded by other ministries, all of which the Americans never told what the end state, the goal was, for the post- allowed to be looted. So what else do you want us to war,” Rutter said. … think except that you want our oil?” … Rutter’s view is confirmed by the “After Action” report For its part, the Hawza could do little to protect the 17 of the Third Infantry Division, a document that is avail- out of 23 Iraqi ministries that were gutted by looters, or able on an Army Web site but that has received little the National Library, or the National Museum (though attention. … As the report’s authors note: “Higher head- sheiks repeatedly called on looters to return the stolen quarters did not provide the Third Infantry Division artifacts). But it was the Hawza, and not American (Mechanized) with a plan for Phase IV. As a result, Third forces, that protected many of Baghdad’s hospitals from Infantry Division transitioned into Phase IV in the looters — which Hawza leaders never fail to point out absence of guidance.” … when asked whether they would concede that the United Without a plan, without meticulous rehearsal and States is now doing a great deal of good in Iraq. The without orders or, at the very least, guidance from higher memory of this looting is like a bone in Iraq’s collective up the chain of command, the military is all but para- throat and has given rise to conspiracy theories about lyzed. And in those crucial first postwar days in Baghdad, American motives and actions. … American forces (and not only those in the Third Infantry Division) behaved that way, as all around them Baghdad The Troops: Too Few, Too Constricted was ransacked and most of the categories of infrastruc- On Feb. 25, the Army’s chief of staff, Gen. Eric ture named in the report were destroyed or seriously Shinseki, warned Congress that postwar Iraq would damaged. require a commitment of “several hundred thousand” Some military analysts go beyond the lack of Phase IV U.S. troops. Shinseki’s estimate was dismissed out of planning and more generally blame the Bush administra- hand by Rumsfeld, Wolfowitz and other civilian officials tion’s insistence, upon coming into office, that it would no at the Pentagon. … Shinseki retired soon afterward. longer commit American armed forces to nation-building But Shinseki wasn’t the only official who thought there missions — a position symbolized by the decision [later were going to be insufficient troops on the ground to reversed] to close the Peacekeeping Institute at the Army police Iraq in the aftermath of the war. The lack of ade- War College in Carlisle, Pa. … quate personnel in the military’s plan, especially the military police needed for post-conflict work, was pointed Neglecting ORHA out by both senior members of the uniformed military In his congressional testimony before the war, and by seasoned peacekeeping officials in the United Douglas Feith described Gen. Garner’s mission as head Nations secretariat. of ORHA as ’’integrating the work of the three substan- Former Ambassador Carney, recalling his first days in tive operations’’ necessary in postwar Iraq. These were Iraq with ORHA, puts it this way, with surprising bitter- humanitarian relief, reconstruction and civil administra- ness: The U.S. military “simply did not understand or tion. Garner, Feith said, would ensure that the fledgling give enough priority to the transition from their military ORHA could “plug in smoothly” to the military’s commission to our political military mission.” … mand structure on the ground in Iraq. But far from plug- The planning stages of the invasion itself were marked ging in smoothly to Central Command, ORHA’s people by detailed preparations and frequent rehearsals. Lt. found themselves at odds with the military virtually from Col. Scott Rutter is a highly decorated U.S. battalion the start. commander whose unit, the Second Battalion, Seventh Timothy Carney has given the best and most damning Infantry of the Third Infantry Division, helped take the account of this dialogue of the deaf between ORHA offi- Baghdad airport. He says that individual units rehearsed cials and the U.S. military on the ground in Iraq in a sear- their own roles and the contingencies they might face ing op-ed article in the Washington Post in late June. ... over and over again. By contrast, the lack of postwar Carney stressed the low priority the military put on planning made the difficulties the United States faced ORHA’s efforts. “Few in the military understood the

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urgency of our mission,” he wrote, But the Shiites soon no experience in postwar reconstruc- “yet we relied on the military for tion or nation-building, the Pentagon support. For example, the military demonstrated that they presented Bremer as a good adminis- commander set rules for transporta- trator — something, or so Defense tion: we initially needed a lead were interested in Department officials implied on military car, followed by the car background, Garner was not. with civilians and a military vehicle political as well as Bremer’s first major act was not bringing up the rear. But there auspicious. Garner had resisted the weren’t enough vehicles. One day religious autonomy. kind of complete de-Ba’thification of we had 31 scheduled missions and Iraqi society that Ahmad Chalabi and only nine convoys, so 22 missions some of his allies in Washington had were scrubbed.” favored. In particular, he had resisted calls to complete- More substantively, he added that “no lessons seem to ly disband the Iraqi Army. Instead, he had tried only to have taken hold from the recent nation-building efforts in fire Ba’thists and senior military officers against whom Bosnia or Kosovo, so we in ORHA felt as though we were real charges of complicity in the regime’s crimes could be reinventing the wheel.” And doing so under virtually demonstrated and to use most members of the Iraqi impossible constraints. … Army as labor battalions for reconstruction projects. The lack of respect for the civilian officials in ORHA Bremer, however, took the opposite approach. On was a source of astonishment to Lt. Col. Rutter. “I was May 15, he announced the complete disbanding of the amazed by what I saw,” he says. “There would be a meet- Iraqi Army, some 400,000 strong, and the lustration of ing called by Amb. Bodine” — the official on Garner’s 50,000 members of the Ba’th Party. As one U.S. official staff responsible for Baghdad — “and none of the senior remarked to me privately, “That was the week we made officers would show up. I remember thinking, this isn’t 450,000 enemies on the ground in Iraq.” right, and also thinking that if it had been a commander The decision — which many sources say was made not who had called the meeting, they would have shown up by Bremer but in the White House — was disastrous. In all right.” a country like Iraq, where the average family size is six, Carney attributes some of the blame for ORHA’s firing 450,000 people amounts to leaving 2,700,000 peo- impotence to the fact that it set up shop in Saddam ple without incomes; in other words, more than 10 per- Hussein’s Republican Palace, where “nobody knew cent of Iraq’s 23 million people. The order produced where anyone was, and, worse, almost no one really knew such bad feeling on the streets of Baghdad that salaries what was going on outside the palace.” … Larry are being reinstated for all soldiers. It is a slow and com- Hollingworth, a former British colonel and relief special- plicated process, however, and there have been demon- ist who has worked in Sarajevo and Chechnya and who strations by fired military officers in Iraq over the course briefly served with ORHA right after Baghdad fell, says of the summer and into the fall. that “at the U.S. military’s insistence, we traveled out from our fortified headquarters in Saddam’s old Ignoring the Shiites Republican Palace in armored vehicles, wearing helmets It should have been clear from the start that the suc- and flak jackets, trying to convince Iraqis that peace was cess or failure of the American project in postwar Iraq at hand, and that they were safe. It was ridiculous.”… depended not just on the temporary acquiescence of As the spring wore on, administration officials contin- Iraq’s Shiite majority but also on its support — or at least ued to insist publicly that nothing was going seriously its tacit acceptance of a prolonged American presence. wrong in Iraq. But the pressure to do something became Before the war, the Pentagon’s planners apparently too strong to resist. Claiming that it had been a change believed that this would not be a great problem. The that had been foreseen all along (though it had not been Shiite tradition in Iraq, they argued, was nowhere near publicly announced and was news to Garner’s staff), as radical as it was in neighboring Iran. The planners President Bush replaced Garner in May with L. Paul also seem to have assumed that the overwhelming [“Jerry”] Bremer. Glossing over the fact that Bremer had majority of Iraqi Shiites would welcome American

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forces as liberators — an assumption based on the fact cations of the intense religious feelings that Iraqi of the Shiite uprisings in southern Iraq in 1991, in the Shiites were suddenly free to manifest after the fall of aftermath of the first Gulf War. American officials do Saddam Hussein. Making religious freedom possible not seem to have taken seriously enough the possibility for the Shiites was one of the great accomplishments that the Shiites might welcome their liberation from of the war, as administration officials rightly claim. Saddam Hussein but still view the Americans as unwel- But the Shiites soon demonstrated that they were come occupiers who would need to be persuaded, and interested in political as well as religious autonomy. if necessary compelled, to leave Iraq as soon as possi- And although the Americans provided the latter, their ble. continued presence in Iraq was seen as an obstacle to Again, an overestimation of the role of Ahmad the former. … Chalabi may help account for this miscalculation. Chalabi is a Shiite, and based on that fact, the The Next Steps Pentagon’s planners initially believed that he would Whether the United States is eventually successful enjoy considerable support from Iraq’s Shiite majority. in Iraq, even supporters of the current approach of the But it rapidly became clear to American commanders Coalition Provisional Authority concede that the on the ground in postwar Iraq that the aristocratic, sec- United States is playing catch-up. … And the more ular Chalabi enjoyed no huge natural constituency in time passes, the clearer it becomes that what happened the country, least of all among the observant Shiite in the immediate aftermath of what the administration poor. calls Operation Iraqi Freedom was a self-inflicted The Americans gravely underestimated the impli- wound, a morass of our own making. ■

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28 FOREIGN SERVICE JOURNAL/MARCH 2004 F OCUSON I RAQ

RESTORING A SHATTERED MOSAIC Adam Niklewicz

A VETERAN FSO WHO SERVED IN BAGHDAD FOR SIX MONTHS FOLLOWING THE WAR EXPLAINS WHY HE IS OPTIMISTIC ABOUT IRAQ’S FUTURE.

BY HUME HORAN

n April 9, 2003, Baghdad fell to the forces of the Coalition Provisional Alliance — to the Third Infantry Division and the U.S. Marines, to be precise. Just a month later, I arrived in Baghdad with AmbassadorO Jerry Bremer — who succeeded Gen. Jay Garner as the country’s administrator and, in Amb. Bremer’s case, as President Bush’s personal representative in Iraq. I was named a senior adviser to Amb. Bremer at the Coalition Provisional Authority. I continued in that capacity until the end of November, dealing mostly with religious and tribal issues.

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In his pioneering survey of Middle The Iraqi mosaic had Bremer’s position under international Eastern history, Caravan, Carleton law is like that of a chief of state. These Coon describes the region as a “mosaic” been shattered long days, the “letter of authority” that of peoples — a congeries of languages, ambassadors receive from their presi- ethnicities, and religions that extend before Jerry Bremer dent reads like the fine print on the back from the present nearly three mil- back of an airline ticket. Bremer’s, lennia. Such was the case in Iraq (the assumed command of however, resembles that which George classical Mesopotamia), with its Shiite Washington gave his ministers. Barely Muslim majority (perhaps 60 percent of the CPA. one page long, it essentially says, “You the population), plus Sunni Muslims have my full confidence and support. (about 20 percent), Kurds (around 15 Go out there, tell me what you need, percent), and smatterings of Turkomans and Christians. and do your best for our country.” And in Bremer’s case Of Baghdad’s Jewish community, whose ancestors had these are not only words. He has held weekly teleconfer- lived in Mesopotamia since the 6th century B.C., and who ences with President Bush and Secretary of Defense in modern times held leading roles in commerce, banking Rumsfeld, and frequently travels back to Washington to and medicine, fewer than a dozen remained. meet with the president, senior members of the adminis- Lamentably, this Iraqi mosaic had been shattered well tration and the Congress. His requests for resources have before Jerry Bremer assumed command of the CPA. been promptly and generously met. Although the Sunni minority had already dominated Iraq Bremer and his British colleague soon had at their for almost 400 years by the time the infamous Ba’th Party command a cadre of over a thousand American, British assumed full power in 1968, it was when Saddam Hussein and Australian experts. Meals in the cavernous mess hall seized absolute power in 1979, that Sunni rule took a truly of the Republican Palace were opportunities for thumb- Hitlerian turn. Power in the Middle East is traditionally nail seminars. You might sit with the new head of accompanied by favoritism and abuse, but Iraq set new Baghdad’s garbage disposal program — a dynamic sanita- standards on both counts. Under Saddam these presump- tion engineer (and grandmother) from California — or a tions were given steadily greater force by his total com- former dot-com millionaire who had decided doing pro- mand of the tools of modern technology and coercion. bono work would be more interesting than starting a new Accordingly, Jerry Bremer did not just have to put company. His job was to sort out winners from losers Humpty Dumpty together again. He has had to reassem- among Saddam’s state-owned enterprises. Or your lunch ble a myriad of ill-fitting, damaged, mutually antagonistic companion might be a U.S. Special Forces major with a fragments into something resembling a working egg. scholar’s knowledge of the Qur’an and Iraq’s tribes, or a brilliant British intelligence agent, plus every sort of Life at the CPA expert in power generation, community development and As representative of the chief occupying power, Jerry human rights. And on trips to regional centers, such as Hilleh (near Babylon), Kirkuk (in Kurdistan) or Ramadi Hume Horan was an FSO from 1960 to 1998, serving as (in the “Sunni Triangle”), you’d meet inspiring, coura- ambassador to Cameroon, Equatorial Guinea, Sudan, geous colleagues working closely with local Iraqis while Saudi Arabia and Cote d’Ivoire, as well as deputy chief of facing danger every day. Our Kirkuk representative mission in Jeddah and principal deputy assistant secre- moved out of her house when it was attacked by rocket- tary in the Bureau of Consular Affairs. He is the author propelled grenades. The U.S. base she moved into was of To the Happy Few, a novel about terror and the Sudan itself attacked by mortars the next day. (Electric City Press, 1996), and until May 2003, served as The atmosphere of the CPA was unique. “Morale” was an analyst on Middle Eastern affairs for MSNBC, NPR, high despite arduous living conditions. Baghdad proved BBC, and Fox News. From May to November 2003, he that if good people are given first-class leadership, an was a senior adviser to Amb. Jerry Bremer at the important mission and sufficient resources, morale will Coalition Provisional Authority in Baghdad, where he take care of itself. All of these elements, and especially dealt with religious and tribal issues. leadership, were abundantly present. True, living condi-

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tions were Spartan: the most senior Jerry Bremer had to launcher, her blonde pony tail show- people shared four-man trailers, oth- ing under a Kevlar helmet, made a ers were packed into available empty reassemble a myriad of wordless but eloquent statement spaces that resembled troopship bays about the U.S.A. Once, coming out of in their crowding and lack of privacy. ill-fitting, damaged, a meeting with a local ayatollah, I After the Rashid Hotel was bombed, found the female MP in my security some of its refugees kept mattresses in mutually antagonistic detail surrounded by a worshipful broom closets, and at night slept on crowd of Iraqi girls. Had Iraq been a CPA office floors. Yet despite the fragments into Catholic country, word might have external threats, a 14-hour or more spread: “Our Lady of Fatima has been work day, and a 6.5-day workweek, we something resembling a sighted in northwest Baghdad.” knew we had an opportunity to try to At night, the enlisted men would do something important for our coun- working egg. use my “enabled phone” for calls to try — one that might not come again. the United States. Only a stone could (That said, I would have been happy remain unmoved by these conversa- to see even more State Department Arabists hasten to be tions. I’ll never forget the sergeant who broke the news to “present at the creation.”) his wife that his unit’s duty had been extended for six As for the WMD issue, frankly, it seemed non-ger- months. Her distress was audible throughout the office. mane to us. We all wished the estimable David Kay good His mild response, was, “Honey, you don’t have to shout. luck, but were ourselves fully busy with each day’s crises. I hear you just fine.” Then he listened for a long while. And as our devoted human rights investigators brought Finally, he said gently, and with great seriousness, “Honey, forth fuller accounts of Saddam’s mass graves, “Operation you know what my job is here and I’m going to do it. But Iraqi Freedom” was seen by us as necessary, justified and don’t worry. We’ve got the best platoon in the company. even overdue. We look after each other. And, honey, please think of all the money we’re saving. And you know what? When I Siamese Twins come home, I’ll buy you that car.” Central to the CPA experience and its ultimate success will have been the Authority’s “Siamese twin” relationship Actions Taken, and Not Taken with the U.S. military. Our military headquarters (Joint Jerry Bremer took charge convincingly. Less than a Task Force 7) were co-located in the palace with week after his arrival in May 2003 he transformed the Ambassador Bremer. Lt. General Ricardo Sanchez sat future of Iraqi politics by dissolving the Iraqi Army and immediately to Bremer’s left at the daily staff meeting. the Ba’th Party. Of the eleven degrees of “Ba’th-hood,” Speaking as a former draftee into the infantry, and as those members in the top five were excluded from further an FSO who has worked closely with the U.S. military in government employment (with limited opportunities for several assignments, it would exhaust the Oxford English appeal). Both decisions have been criticized, but such Dictionary to describe my admiration for the soldiers with criticism is wrongheaded and ahistorical. whom I worked. Our officers and enlisted personnel First of all, it is worth noting that well before Bremer were smart, proficient, enterprising, disciplined, stoic and acted, the Iraqi Army had already doffed its uniforms, enduring. In the early morning, I’d see them load up into (mostly) thrown away its weapons, and melted back into their solar ovens, aka Humvees, and head off for a 12-hour the civilian population. To us at the CPA it would have day of patrols. In mid-June, our office temperature hit undercut our own war effort had we immediately called 100 F, while outside it reached 122 F in the shade! When Saddam’s army back to work. And what would the U.S. I asked a senior officer how our people could endure public have said? In time, matters changed. Since then, these conditions, he laconically answered, “They’re young, we have, first slowly, and now with increasing speed, strong, drink a lot of water, and adapt.” begun to re-establish an Iraqi security force. To some Our female soldiers were great “change agents.” The degree our hand has been pushed by a changing time sight of a female soldier, behind a 40-mm. grenade frame, but the Army’s initial dissolution gave us a chance

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to make a fresh and certainly less tainted job of rebuilding. lenge of certain radical Shiite clergy. Iraq’s Shiites have The dissolution of the Nazi — I mean Ba’th — Party in traditionally been led by “grand ayatollahs,” who have tra- “Operation Round-Up Ready” has also been described as ditionally preferred a moral and pastoral role over direct an error. There is talk about valuable talent purportedly involvement in politics. The current leader of Iraq’s lost to the “New Iraq” because the state will be denied the Shiites is Grand Ayatollah Ali al-Sistani. Of Persian origin, services of certain school headmistresses or hospital Sistani survived the Saddam years due to his great pres- administrators. Those affected supposedly joined the tige, and more importantly, by avoiding direct conflict party under duress, or for nonpolitical reasons. These with the Ba’thi government. Some colleagues of Sistani’s claims are often factually wrong, and in any case are not who were almost as august, but more “political,” did not. germane. We had to seize the moment and move fast to One was executed by having nails driven into his skull, root out a profoundly rotten governing structure. Flowers another by having acid injected into his brain. may well have been lost along with the brambles. The attitude of the grand ayatollahs toward the CPA Revolutions are not nuanced, and that is just what we was, in the main, discreetly welcoming. Increasingly, were trying to carry out in the first few months of the though, these quietists are being challenged by younger, CPA. (Shiite leaders, on the other hand, believe the CPA less erudite, and more radical junior clergy and would-be has been too forbearing in its pursuit and punishment of clergy. Their leader, Muqtada al-Sadr, has scant religious former Ba’this.) qualifications, but bears an honored name. He is also a The Ba’th Party’s structures, however, extended too far, prime suspect in the murder of a religious rival, the son of and too deep, into Iraqi society to be sufficiently eradicat- Sistani’s mentor, Grand Ayatollah Abd al-Majid al-Khoi. ed by the CPA. Our first efforts in this regard, though, will Justice for him will probably come — if ever — at the have helped any new Iraqi government over some of the hands of a future Iraqi administration. It would seem as most painful early stages of political purification. In the if action now against him, by the CPA, would be too end, it will be up to the Iraqis to see de-Ba’thification inflammatory. He and his followers will cause trouble for through to whatever extent they wish or deem necessary. the CPA and any future Iraqi government. Regrettably, two other important measures are likely to be delayed. One is the thoroughgoing rationaliza- The Governing Council tion of Iraq’s inefficient economy and agriculture. Of In July 2003, Jerry Bremer appointed a 25-person several hundred Saddam-era government-owned “Governing Council” as a first step toward a future sover- enterprises, only a minority could survive in an open eign government of Iraq. The appointment of its mem- market economy. Allowing Adam Smith to have his bers followed months of negotiations with various Iraqi way, however, would throw innumerable urban workers constituencies. The process was similar to a college out on the street. Something similar is true of agricul- admission’s office putting together a balanced class of ture: Iraq used to grow its own food, and was among good performers. The GC includes a Christian, five the world’s leading exporters of dates. Saddam, Kurds, 13 Arab Shiites, and five Arab Sunnis. Twenty-two though, was more concerned with control than produc- of its initial members were men, and three were women. tivity. Iraqi farmers became accustomed to guaran- The council was given substantial power, including such teed, subsidized agricultural inputs, and a guaranteed tasks as drawing up the 2004 budget, overseeing the min- market (at inflated prices) for their crops. Meanwhile, istries, and rebuilding the military. Iraq came to import 60 percent of its foodstuffs. Date A second step was the announcement on Nov. 15 that exports were negligible. Today, Iraqi farmers would be the council, in consultation with Amb. Bremer, had decid- crushed by “globalized” competitors. The CPA does ed on “the process to form a constitutional convention to not want a wave of “Okies” moving from their aban- draft a permanent constitution” and to set out a new time- doned farms into Baghdad and other cities. line by which the CPA will transfer sovereignty by July 1, Accordingly, it seems likely that Iraq’s economy and 2004. Prior to that, the Governing Council is to draft a agriculture will both, for the time being, be spared the “fundamental law” in consultation with the CPA, specify- surgeon’s knife. ing a Bill of Rights, and a timetable for drafting and ratify- A second is the CPA’s reluctance to confront the chal- ing a permanent constitution. Elections for a permanent

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Iraqi government were set for Dec. 31, “Operation Iraqi Nations. But many Iraqis, and not just 2005; meanwhile, a Transitional the CPA, believe Iraq’s political future Assembly, a substantial expansion of the Freedom” was seen by would be off to a bad start were it to GC, would begin to govern Iraq as of begin with major concessions to an May 31, 2004. us as necessary, unelected churchman — who himself Looking ahead, the transfer of sov- may be influenced by the voices of ereignty to Iraqis on July 1 will not and justified and even younger, radical rivals. cannot change. That is an action which Looking ahead, we may intend a once announced, cannot be recalled by overdue. certain kind of sovereignty for Iraq: a serious, major participant in world one that is sovereign, indeed, but politics, such as the U.S. The modali- where, at the same time, coalition ties outlined above, however, whereby Iraqis implement forces are welcome, human rights are respected, and the their sovereignty, may change. Concessions may have to political system is democratic. These codicils to Iraq’s be made to the demand of Grand Ayatollah Sistani that independence are all worthy, but either a country is inde- the new government be chosen by direct elections. The pendent or it is not. In the coming months it may be hard CPA maintains that because Iraq lacks an electoral law, to direct into responsible channels the exuberant dynam- defined electoral constituencies, and a current census, ics we have loosed. there isn’t time enough to organize direct elections. Arab politics has a term: “Muzaayadah,” or “overbid- Security could be a problem, too. Various compromises ding;” i.e., whatever your opponent says or offers, go him may be offered, some perhaps involving the United one better. As July 1 nears, there will be elbowing and

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high-sticking, as parties and individuals try to position their community to the loss of power and privilege they themselves advantageously by appeals to Iraqi national- enjoyed for four hundred years. Many Sunnis did not like ism. I can foresee the “Green Zone,” Baghdad’s four Saddam — but even to them, he was a bulwark against the square miles of heavily guarded real estate that house the Shiites and the Kurds. Our policies of firmness are mak- CPA headquarters and other facilities, becoming the irri- ing the point to Sunni leaders that fruitless resistance is tation to Iraqis that the “Canal Zone” was to the more costly than grudging compliance. As this message is Egyptians. Egyptian demagogues used the “Zone” issue comprehended, it will be time to offer “nation-building” to silence their moderate opponents, and eventually, the inducements. As for the argument that our policies stim- Egyptians nationalized the canal. ulate Sunni humiliation and anger, Iraqi Shia, at least, The interval between the transfer of sovereignty to the would point to the nearest mass grave. Transitional Assembly and the establishment of the new, The Iraqi and foreign terrorists, meanwhile, lack permanent Iraqi government could be a time of risk and strategic advantages: They have no foreign refuge, and the instability. The Governing Council will be gone, and the cities from which they operate are scattered across a flat, TA, an untried body, must run the country, draft a constitu- open tableland. There are no jungles in Iraq. Iraqi Sunnis tion, conduct a referendum, and then make way for nation- are surrounded by 20 million hostile or indifferent Shiites al elections and a legitimate, elected new Iraqi government. or Kurds. Meanwhile, as we painstakingly process lots of This process has many, many moving parts. It can easily go information, and develop valuable, actionable intelli- wrong. Prominent moderates on the council, such as Dr. gence, our superior training and weaponry will grind Mowaffak al-Rubaei, Iyyad Allawi, Ghazi al-Yaqir and down the opposition, and discourage its supporters. Wars Adnan Pachachi, will have their hands full. The assassina- are never won by periodic suicide bombings. tion of Dr. Aqila al-Hashimi — a brilliant woman scholar Responsible Sunni leaders should urge their commu- diplomat, a Shiite, and a descendant of the Prophet, was a nity to come to terms soon with the new reality (although loss to peace. She has not yet been replaced. threats from radical elements won’t make such a policy Iraq is short on homegrown leaders. Saddam saw to easy). The opportunity for a “smoother merge” with the that. One nonetheless hopes that the former exiles now rest of Iraq’s population is surely greater while the CPA on the GC may fuse their acumen and international expe- and the U.S. Army can act as referees, than it will be after rience with the legitimacy of domestic religious leaders — July 1. Thereafter, Iraq’s Shia, who have been astonish- and thereby create a more workable basis for governance ingly non-vengeful up to now, might be prompted to make than that of most Middle Eastern nations. Iraq’s Shiites their superiority in number more emphatically felt. should ignore their extremists and seize the “pretty good deal” that we have offered them. They should remember The Longer Term Is Up to the Iraqis the tragedy that befell their community after the early The Iraqis will not be ready for the challenge of inde- 1920s, when they shunned participation in the British- pendence. Saddam left a deep psychological imprint controlled administration of Mesopotamia. upon his subjects. It would take almost a generation of mandate-style colonialism to detoxify their politics and Reasons for Optimism their psychology. But alas! There are no political dialysis I believe the near future for Iraq looks good. As long machines. And the U.N.’s mandate commission is out of as Saddam Hussein, a sort of human trapdoor spider, order. A body that can barely handle the former West eluded capture, Sunnis could continue to hope to return Irian could not deal with a challenge so many times to power. And the Shia — despite all our assurances — greater. After July 1, though, we’ll honestly be able to say could not really believe that “He whose name must not be to ourselves, and to the world, that we left Iraq freer than mentioned” might not somehow re-emerge. But now that we found it, that we showed an altruism that may be he has been apprehended, there is no chance at all for a incomprehensible to the peoples of the Middle East, and Ba’thi restoration. that we gave the Iraqis a new chance to plot their destiny Saddam’s capture shows the success of our strategy and make their own mistakes. toward the Sunni terrorists. We have correctly begun After July 1, there will be much that we and the Iraqis from the premise that there is little we can do to reconcile must work at together. Our continued military presence

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and our economic support will give The transfer of seized power two years later. us influence — but can also become But even with our best efforts, what the object of hostility and opposition. sovereignty to Iraqis on happens in Iraq will depend on the We must be adroit diplomats and Iraqis themselves. Privately, quite a sensitive to Iraqi nationalism, lest we July 1 will not and few of them would like to see the U.S. reawaken memories of CENTO and occupation go on for another year, or the Baghdad Pact. But we can con- cannot change. But the two, or longer. But such hopes are tinue our close “technical coopera- unrealistic. And were they not, a pro- tion” in every field, especially the modalities may change. longation of the U.S. administration military and security. We can offer would be immaterial to Iraq’s success help in drafting a constitution, and or failure. Success or failure in devel- (especially when oil revenues pick up) we must steadily opment depends more on what the recipient brings to the push the new government toward honesty, transparency process, than anything that a foreign power can confer. On and performance. In Sudan, after the 16-year dictator- the one hand, there is Korea, and Singapore, and Germany, ship of Muhammed Gaafur al-Nimeiry was overthrown and Japan. On the other, are more countries than one cares in 1985, the head of the opposition said to me, to name. At an African post I once asked my able USAID “Democracy is a sacred cow, but if that cow does not director what “flagship” project we could show off to a vis- produce milk, it will be slaughtered.” And sure enough, iting Cabinet officer. The director sadly advised that when Sudan’s democratic government proved to be no despite more than 20 years of substantial U.S. aid, there more effective than Nimeiry’s, another military man were none.

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The bad prognostications may Despite the external regime by an Anglo-American- indeed come to pass: Iraq’s future Australian coalition! Have years of administrations may find themselves threats, a 14-hour or more suffering and exile made the new overwhelmed by corruption, region- government of Iraq less sensitive, less al separatism and sectarian strife. If work day, and a 6.5-day allergic to confronting the baloney that happens, given the reality of the that has passed for political consen- development process and current workweek, we knew we sus in the Arab world for more than a international circumstances, we half-century? After the sticks and couldn’t have done anything about it had an opportunity to try stones of the mass graves at Hilleh, in the first place. But whatever hap- what should the Governing Council pens, Iraqis will be better off than to do something important. care about harsh words from their they were before. Nothing can ever Arab ‘brethren’? be as bad as Saddam. “From now on the Iraqis have the Pessimists might ponder the “Glorious 13th of July.” On moral high ground. No other Arabs ‘will have their num- that day the new Governing Council took its first decision: ber.’ To me, for a day at least, it is as if the sun has broken it declared April 9, the day of Baghdad’s fall to coalition through the cloud bank of reflexive, defensive BS that blan- forces, a national holiday. That night, I wrote to Jerry kets the political and intellectual life of the Arab world.” Bremer: “What a marvelously brave, anomalous, self- respecting, confident gesture by an Arab government! The Impossible Dream? Imagine, an Arab nation celebrating the defeat of its former Even partial success by a future Iraqi government,

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moreover, could be of very great con- The CPA’s work proves impact such an omission of the Arab sequence for the region and the world’s favorite “compulsory figures” world. Iraq’s new leaders may have that if good people are had on me. learned something from the harsh Nor do I see any prospect of schooling of the past half-century. given first-class Iraq lurching toward some sort of These leaders, furthermore, and Khomeini-like theocracy. The Iran- especially the Shiite laymen on the leadership, an important ian experiment is discredited among Governing Council, and their spiritu- most Iraqi Shiites, and those who for al mentors in Najaf, are more intel- mission and sufficient nine years fought against Iran under lectually open to the modern world Saddam won’t change sides now. than are their Arab Sunni counter- resources, morale will Accordingly, one can hope that even parts almost anywhere else. Neither a halfway stable and moderately the Shiite leaders nor the Kurds are take care of itself. democratic Iraq will eventually contaminated by that distemper establish cooperative relations with a toward the West that is so common more democratic Iran. among active Muslim religious elements in Riyadh, Cairo, And then to hope further, might those two states, London, Paris, and almost everywhere else. No Crusaders together with Israel and Turkey, shift for the better the filled Hilleh’s mass graves. In my conversations, the topic strategic, military and intellectual climate of the Middle of Israel almost never arose; Palestinians were dismissed as East, and help other Arabs and Muslims to rejoin not the toadies of Saddam. Fellow Arabists will understand the Western, but the modern world? ■

MARCH 2004/FOREIGN SERVICE JOURNAL 37 F OCUSON I RAQ

CAN THE UNITED STATES EXPORT DEMOCRACY TO IRAQ? Adam Niklewicz

STRUGGLING TO IMPLANT A DEMOCRATIC SYSTEM IN IRAQ, THE U.S. IS BEING FORCED BY POLITICAL REALITY TO MAKE SIGNIFICANT CONCESSIONS.

BY MARINA OTTAWAY

n a word, no. The United States cannot “export democracy” to Iraq. It may set in motion a political process eventually leading to a more open political system in Iraq, but only if it gives up the idea of exportingI a ready-made democratic system. The political reality of Iraq has been slowly but relentlessly driving home this basic truth. At this writing, the high expectations of exporting democracy to Iraq evident at the beginning of the war have been progressively whittled down. The United States is still struggling to implant a political system based on

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democratic institutions and values, Values are difficult to the U.S. Given its own history and but is being forced by reality to make present tensions, the idea that the significant concessions. Before exam- export because they United States can easily and quickly ining this in more detail, it is useful to export democratic values lacks real- review the building blocks of “democ- change slowly and ism. racy” as we know it. But the most challenging problem unevenly. for those who would like to see democ- The Architecture of racy become a major American export Democracy product lies in the political require- The political system we call democracy has three ments for democracy to flourish — in particular, the major components: institutions, values, and a balance existence of a balance of power among countervailing of political forces. The institutional design of democ- forces. The United States has tried at times to alter the racy is well-known and seemingly easy to pass on to balance of power in other countries. During the Cold other countries. In a democratic system power resides War, for example, the U.S. provided funds to anti-com- in the political institutions, not in individuals — in the munist parties and supported friendly strongmen. More presidency rather than the president. Thus, power recently, it has sought to influence the outcome of cannot be monopolized by an individual and it cannot elections in some countries by supporting social orga- be inherited. Competitive, open elections determine nizations within civil society that purportedly aim at who occupies positions of power. As an additional getting out the vote and monitoring elections but, in guarantee against tyranny, power is not concentrated reality, try to mobilize voters against the incumbent in one institution but divided among three sets of insti- regime. Support for NGOs and democratic parties tutions designed to counterbalance each other. helped defeat Slobodan Milosevic in Yugoslavia in This institutional design has been exported many 2000, for example. But the impact of such interven- times, for example, by the United States to the tion is often short-lived, as the resurgence of radical Philippines, Germany and Japan, as well as by France nationalism in Yugoslavia three years after the defeat and Britain to all their former colonies. But in most of Milosevic shows. cases the exported institutions did not take root — Germany and Japan, always invoked as examples, are The Challenge in Iraq notable because they are the exception, not the rule. At first glance, designing democratic institutions for The democratic institutions France and Britain sought Iraq would appear relatively easy. There is no longer to implant in their colonies before giving them inde- an entrenched incumbent government to oppose pendence rarely survived, with India being the most reform; on the contrary, with Saddam gone and the notable exception. Ba’th Party disbanded, the country presents an institu- Part of the reason for the failure of exported insti- tional vacuum ready to be filled. Furthermore, Iraqi tutions is the absence of appropriate values to under- political parties agree on the basic principles of elect- pin them. Values are difficult to export because they ed institutions and separation of powers. Contrary to change slowly and unevenly. It took the United States the expectations of many observers, the most vocal almost two centuries after the Declaration of champions of electoral democracy in Iraq at this point Independence to institute full civil and political rights are Shia and Sunni clerics — above all Grand for all its citizens. But in the meantime, it had func- Ayatollah Ali al-Sistani, who has challenged the United tioning democratic institutions. Separation of church States’ current transition plan because it does not call and state, another fundamental principle of democra- for an elected transitional assembly. cy, in reality remains contested terrain to this day in Institutional consensus breaks down, however, on the issue of federalism. Few argue that Iraq should not Marina Ottaway is a senior associate in the Democracy have a federal system. But the United States and many and Rule of Law Project at the Carnegie Endowment for Iraqis, particularly westernized former exiles, believe International Peace. that federalism should be based on states that are sim-

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ply geographic subdivisions, like A tension is emerging in Political Facts of Life the present 18 provinces, not terri- Finally, a tension is emerging tories to which particular ethnic or Iraq between the ideal of in Iraq between the ideal of religious groups lay a claim. The democracy based on individual Kurds, on the other hand, view democracy based on rights and a system that gives de federalism as a system that would facto recognition to group rights. guarantee the autonomy of Kurd- individual rights and This is an issue that has received istan, which they see not as anoth- insufficient attention to date, but er administrative subdivision of a system that gives that is likely to become more the country but as the homeland of prominent in the future because the Kurdish nation. The Coalition de facto recognition to group representation and group Provisional Authority has already rights have become a fact of life been forced to accept that the group rights. under the American occupation. Kurds will retain their present de The United States rejects the facto autonomy for the time being, concept of group rights and fights realizing that unless the Kurds get against the inclusion of any provi- what they want, the entire transition process would sions implying recognition of group rights in any inter- stall. Thus, agreeing on a permanent design for the national convention or agreement. However, in trying federal system is the major institutional challenge Iraq to introduce some semblance of representation for faces. Iraqis under the occupation, the United States turned Some democratic values are accepted, at least in to a form of group representation. The Governing theory, by all major political players. No significant Council has been meticulously crafted to provide rep- party openly contests the proposition that all citizens, resentation for all ethnic and religious groups (and at including women, should have equal rights, and that least a token presence for women), as have local and political and civil liberties should be safeguarded. In provincial councils. practice, however, these democratic values are chal- Such an ethnic and confessional balancing act may lenged by the determination of some political players have been inevitable under the circumstances, but it to root the state in Islam and by the creeping practice has created a precedent that may have lasting conse- of group representation that has become the norm quences for Iraq. Already, Iraqi politics is discussed under the American occupation. even in the United States in terms of the size of ethnic The issue of the relation of Islam to the state is a and religious groups rather than the strength of politi- delicate matter in Iraq. Although some Iraqis, and cal parties. For example, commentators invariably certainly the United States, would prefer a secular suggest that elections in Iraq would lead to Shia dom- state, it is a foregone conclusion that the constitution ination, because the Shia represent about 60 percent will have to recognize that Iraq is a Muslim country. of the population. Yet the fact that there are many Such recognition will open up the question of political parties in Iraq, including several Shia Islamist whether Islamic law, the sharia, should underpin the parties and at least at least one Shia secular party, does entire legal system of modern Iraq. How much the not figure in most discussion of probable election out- country will be dominated by Islamic values rather comes. than democratic ones is a question that will be deter- But the most difficult obstacle to democracy in Iraq mined much more by election results than by what is is neither institutions nor values, although both pose written in the constitution. The fact that some Shia considerable challenges. Rather, it is the balance of clerics have already emerged as major political fig- power. Is there a sufficient array of political forces to ures and Sunni clerics have responded by organizing ensure that the country will not fall again under the their own shura council shows that there will be a control of one strong man or one political party? The complicated relationship and much tension between considerable number of parties in the Governing democratic and Islamic values in Iraq. Council and outside it, coupled with the emergence of

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civil society organizations that Nobody has any clear idea grants, the councils were essen- will multiply rapidly as foreign tially advisory groups that pro- funding becomes available, sug- how much support any of vided an Iraqi presence along- gests a healthy pluralism capable side the American occupation of supporting democracy and the players would receive in authorities. In June, the CPA preventing any one group from also started discussing the cre- imposing its will on the others. free and fair elections, and ation of a national-level Iraqi But political parties and orga- Advisory Council with similar, nizations of civil society are not how much power they limited functions. the only, and possibly not even Events soon forced a rethink- the major, political forces in Iraq. would be able to exert by ing of the initial plan. With Kurds have their own state appa- opposition to the U.S. occupa- ratus, complete with an army. nondemocratic means. tion mounting, the Bush admin- Individual clerics wield consider- istration decided it had to grant able power, and so do tribal lead- Iraqis a greater role immediate- ers. Some of the parties and some of the clerics, fur- ly, and that it had to speed up the formation of a cred- thermore, have their own armed militias. Nobody has ible Iraqi government to which sovereignty could be any clear idea how much support any of the players returned. As a first step, the Advisory Council was would receive in free and fair elections, and how much renamed the Governing Council in an attempt to reas- power they would be able to exert by nondemocratic sure the population that Iraqis were beginning to take means, be it the issuing of fatwas (religious edicts) or responsibility for the running of the country. At the the force of arms. Thus, while political pluralism is same time, the Bush administration devised a new undoubtedly a characteristic of today’s Iraq, this plu- plan for accelerating the formation of an Iraqi govern- ralism is not a guarantee of democracy. ment. In September, the administration announced that a Changing Course constitution would be adopted within six months, and U.S. plans for exporting democracy to Iraq have that elections would be held in the summer of 2004, evolved considerably since the occupation. In the allowing the formal return of sovereignty to Iraq well early phase, even before the war started, the United ahead of the U.S. presidential elections. While the States envisaged exporting democracy as a ready-made CPA still believed that American experts should play a system, in a process analogous to that used in Germany major role in writing the constitution, to help export and Japan after World War II. Under a protracted democratic institutions to Iraq, it also tried to increase American occupation, American experts would draft Iraqi participation in the process. Toward that end, it the constitution, build up the institutions, and start the asked the Governing Council to form a committee that process of economic restructuring. When sovereignty would devise the process for writing the constitution. was returned to Iraq, at least two years after the begin- The committee could not agree on a process, how- ning of the occupation, Iraq would have a well- ever, and furthermore concluded that the writing of designed, functioning system in place. the constitution would require at least one year. This Because Americans envisaged a lengthy occupation, led the Bush administration to change tack again, Iraqi participation in the running of the country was reaching an agreement with the Iraqi Governing extremely limited in the first months after the war. Council in mid-November on yet another plan for The CPA and the military’s civil affairs teams concen- transferring sovereignty to an Iraqi government. trated their institution-building efforts largely at the Three aspects of this plan are noteworthy. First, it was local level, setting up councils in all major towns and, negotiated with the Governing Council, an unprece- somewhat later, in all provinces as well as in neighbor- dented recognition that the U.S. could no longer uni- hoods of the larger cities. With no power and no rev- laterally announce plans for Iraq as it had done until enue of their own, except what they received in small then. Second, it proposed a two-stage process to

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arrive at a democratic system in It is now clear that the March 2005 and the election of Iraq. Third, despite the previous the new national assembly by setbacks, the plan still aimed at United States cannot use a December 2005. This is certain- exporting a U.S.-designed demo- ly not adequate time to write a cratic system to Iraq. prolonged occupation to constitution, hold a true national consultation about it, submit it to The Revised Plan Meets impose the system it a referendum, put in place the Reality new electoral system required by The first stage of the envisaged favors, as it did in the constitution and, finally, orga- process includes the writing of an nize elections for a national interim constitution (called first Germany and Japan. assembly. Basic Law, then Fundamental Law, Since the agreement was and, at the time of this writing, reached last November, the plan Transitional Administrative Law), and the formation, per- to impose on Iraq the institutional model of democra- haps through regional caucuses, of a transitional assembly cy and the values favored by the United States has that would, in turn, choose an interim government. At the been dashed again by the reality of the balance of end of the first phase, in June 2004, the United States power in the country. The idea of a U.S.-style federal would officially restore the sovereignty of Iraq. The sec- system composed of 18 provinces has been under- ond stage, between March and December 2005, includes mined by the Kurds’ insistence that Kurdistan must the election of a constituent assembly, the approval by that maintain the autonomy gained during the 1990s. The assembly of a permanent constitution, a nationwide U.S. was forced to accede to this demand by the real- process of consultation on the proposed constitution, its ization that unless it did so, the entire transition approval in a referendum, and, finally, the election of a timetable, and possibly the entire plan, would be in national assembly. jeopardy. While the recognition of an autonomous Compared to previous plans dictated by the United Kurdistan is supposedly just an interim measure, it will States, the agreement proposed a much more democrat- probably be impossible to reverse in the future. ic process. Nevertheless, several factors indicate clearly The balance of power has also forced a so-far- that the Bush administration still hopes to be able to unsuccessful process of negotiations between the export to Iraq a political system of its own design. Amb. CPA and Grand Ayatollah Ali al-Sistani, who has no Jerry Bremer, the head of the CPA, made it clear, for official role but does have a substantial following, example, that the United States would play a major role and threatens to undermine the transition plan by in writing the interim constitution, embedding in it insisting that even the transitional assembly must be essential institutions and values the permanent constitu- elected. Finally, the balance of power in the country tion would have to respect. Thus, by the time the elect- has already made it a foregone conclusion that the ed constituent assembly drafted the permanent docu- interim constitution will have to recognize a special ment, the major issues would already have been decided. place for Islam in the Iraqi state, another departure In another indication that the United States intended to from the secular model the U.S. would like to implant use the writing of the interim constitution to export a there. ready-made system to Iraq, a number of American It is now clear that the United States cannot use a experts on constitutional law and democracy were hired prolonged occupation to impose the system it favors, as to work as consultants to the CPA after the plan was it did in Germany and Japan. It is equally clear that the announced. United States does not have strong, pro-democracy part- Finally, the timetable set out in the agreement left ners with whom to work, as it had in Germany; it does no doubt that the permanent constitution would be not even have a cooperative, weakened authority figure, largely written before the constituent assembly was as the Japanese emperor proved to be. The exiles on elected: the plan only allows a paltry nine months whom the United States initially counted for implanting between the election of the constituent assembly in democracy in Iraq are struggling to establish their legit-

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imacy and their political network Finally, the balance of CPA has been forced by reality to in a country from which they recalibrate its expectations of have been absent too long. This power in the country has exporting its vision of democracy makes the idea of exporting a to Iraq and is itself negotiating ready-made model of democracy, already made it a foregone and compromising on major polit- unrealistic in any country, particu- ical issues. larly far-fetched in Iraq. conclusion that the interim Ready-made constitutions and institutions imposed from the Setting an Example constitution will have to outside rarely survive the en- But renouncing the impossible counter with the reality of politi- goal of exporting a ready-made set recognize a special place cal power. The political systems of institutions and values to Iraq that survive are those that repre- does not mean giving up on the for Islam in the Iraqi state. sent a compromise between lofty possibility of helping nurture a political principles and political more open political system there. reality, as the U.S. Constitution While it still has a large degree of does. If the United States can control, the U.S. can try to implant in Iraq the idea that start a process leading to compromise, it will make the formation of a political system must be the result of more progress in moving Iraq in the direction of a process of consultation and negotiation among the democracy than if it had succeeded in imposing even major political forces. In this sense, it is good that the the best-written constitution. ■

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MARCH 2004/FOREIGN SERVICE JOURNAL 43 GLIFAA working for a better Iraq and a safer America: GLIFAA Board members David Tessler (EUR/UBI) and Ken Kero (EUR/SE), and a colleague from the Department of Treasury en route to Baghdad in a C-130 transport plane. Gays and Lesbians in Foreign Affairs Agencies F OCUSON I RAQ

FROM INTELLIGENCE ANALYST TO “CITIZEN WATCHDOG” Adam Niklewicz

INTELLIGENCE PROFESSIONALS WERE MISUSED, BOTH BY THE SENIOR LEADERSHIP OF THE CIA AND BY THE POLITICAL LEADERSHIP OF THE COUNTRY — NOT THE OTHER WAY AROUND.

BY GREG THIELMANN

t all started with a sentence in The New York Times. In his column on May 30, 2003, Nicholas Kristof quoted a remark I had made to him in an earlier phone conversation: “The al-Qaida connection and the nuclear weaponsI issue were the only two ways that you could link Iraq to an imminent security threat to the U.S., and the administration was grossly distorting the intelligence on both things.” By the end of that day, I had received a barrage of interview requests from television, radio and the print media, from American and foreign entities.

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Two factors combined to create While the U.S. Speaking Out such an intense level of press inter- The week following the refer- est in hearing the views of an intelligence community ence to me in The New York Times, obscure former mid-level State I was quoted in a ground-breaking Department official. Even as the has much to answer for, story in Newsweek, bannered on U.S. military rapidly established the cover with the words: “Iraq’s control over the Iraqi battlefield, it the buck should stop Weapons: How Bush Hyped the was beginning to become clear that Threat.” While I declined many of the situation in Iraq was not unfold- with the president. the subsequent media requests, I ing the way the Bush administration gradually became more comfort- had led the American people to able explaining the reasons for my expect. There were no “weapons of mass destruction,” criticism of the administration’s justification for the but there was continuing armed resistance to the war. In June 2003, I was interviewed by Bill Moyers Anglo-American occupation of Iraq, resulting in an for his “Now” program on PBS. In July, I participated ever-lengthening list of American dead and wounded. in a press conference sponsored by the Arms Control While there were anonymous voices from inside gov- Association, laying out my thoughts on the relative cul- ernment whispering about how intelligence had been pability of the political leadership and the intelligence distorted to justify the war, the public had previously community in misleading the public about the threat seen no names attached to these accusations. from Iraq. Within the next few weeks, I had long dis- As a 25-year veteran of the U.S. Foreign Service, I cussions with the staffs of the Senate Select was not a stranger to encounters with the public and Committee on Intelligence and the House Permanent with the press, but most of my work during those years Select Committee on Intelligence. In October, I was in the classified realm and most of my advice and appeared on PBS’s “Frontline” (“War, Truth and analysis was for official consumption only. I had inter- Consequences”), CBS’s “60 Minutes II” (“The Man nalized a professional code of conduct designed to Who Knew”) and in Seymour Hersh’s New Yorker arti- protect the sources and methods used to acquire intel- cle, “The Stovepipe.” ligence secrets and to encourage frank and open poli- In spite of my growing confidence in being able to cy deliberations inside government. I was concerned handle unanticipated questions from the press, I was about inadvertently stepping over the line in dis- nonetheless taken aback when a Colombian radio cussing subjects dealing with classified information. I reporter asked why I had waited so long to go public was worried about being imprecise in describing the with my story. If I had had information contrary to the timing of events or the language used in analyses — administration’s account, he implied, did I not have a particularly since I no longer had access to my chrono- moral obligation to present it while the war could still logical files or to relevant official documents. The pos- have been prevented? My defensive and unconvinc- sibility that I would unfairly characterize the work of ing response led me later to ponder the question in a esteemed colleagues or superiors also weighed heavily more rigorous way. on me. I reflected on my initial surprise and anger at the statements made by Vice President Cheney to the Greg Thielmann entered the Foreign Service in 1977, VFW in August 2002 and President Bush to the U.N. specializing in arms control and security issues during General Assembly in September. Just as I was leaving his 25-year career. In his last tour, before retiring from government, the administration seemed to be aban- the Service in September 2002, he was acting director doning all scruples in exaggerating the nature of the of the Office of Analysis for Strategic, Proliferation, Iraqi threat to the American people. The president and Military Issues in the Bureau of Intelligence and and his aides were exploiting the fear of a nation still Research at the State Department. He is now writing traumatized by 9/11 with unjustified speculations that and lecturing on the use of intelligence in defense and Iraq could have nuclear weapons “within months” and foreign policy. ominous warnings that the first smoking gun could be

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in the form of a mushroom cloud Just as I was leaving document, which was quickly rec- — assertions that had no basis in ognized as a forgery when provid- the sober assessments of intelli- government service in ed to the International Atomic gence professionals. Energy Agency. President Bush announced to the fall of 2002, the The resigning director of the the world the interception of high- U.S. Iraq Survey Group, David strength aluminum tubes bound administration seemed Kay, has implied that intelligence for Iraq in a way that implied there analysts were almost entirely was no doubt the tubes were head- to be abandoning all responsible for public misunder- ed for Saddam’s nuclear weapons standings about Iraq. I believed program. The truth was that the scruples in exaggerating then and believe now that the destination of the tubes had been intelligence professionals were debated intensely within the U.S. the Iraqi threat. misused both by the senior leader- government for months. Both the ship of the CIA and by the political State Department’s Bureau of leadership of the country. While Intelligence and Research and the Department of the U.S. intelligence community has much to answer Energy, based on the analyses of the most knowledge- for, the buck should stop with the president who pro- able experts at the national laboratories, judged these vided a polemic rather than an honest assessment to particular tubes unsuited for use in centrifuges to the American people on an issue of war and peace. enrich uranium, and concluded that they were more The last straw for me was the failure of the execu- likely intended for the casings of conventional artillery tive branch (and the Congress) to require from the rockets — an assessment subsequently proven to be intelligence community an updated assessment of correct. The National Intelligence Council and White Iraq’s weapons programs following the reinsertion of House spokesmen acknowledged differences of opin- U.N. inspectors. By the time the U.S. launched its ion in response to press inquiries, but publicly mini- attack on Iraq, the International Atomic Energy mized the significance of the official INR and DOE Agency had already exposed the forgery used to sus- institutional assessments as merely the views of “some tain the African uranium story. It had already con- analysts.” cluded definitively that the aluminum tubes were not Even as the path to further progress on the enforce- being used in Iraq’s nuclear weapons program. U.N. ment of U.N. Security Council resolutions was inspectors on the ground had already been able to reopened with the return of U.N. inspectors to Iraq in resolve ambiguities about the nature of some suspi- November, the administration ratcheted up its cious new construction at suspect sites detected by rhetoric. In his 2003 State of the Union address, national technical means. And the inspectors were in President Bush publicly endorsed a British report on the process of reversing Iraqi violations of U.N. Iraqi attempts to procure uranium ore from Africa restrictions on missile development. But a dormant even though Director of Central Intelligence George nuclear program and a dismantled missile program Tenet had warned the White House by telephone and were not what the administration needed to lead the memorandum against using it three months earlier. In nation to war. After all, Iraq’s nuclear program — as spite of the widespread doubts about the report that I the seed of the only real “weapon of mass destruction” remembered from INR’s internal analysis early in — was the centerpiece of its campaign to raise the 2002, the classified National Intelligence Assessment alarm about the urgent necessity of military action. on Iraqi WMD in October of that year cited the report as key evidence that “Iraq had begun vigorously trying Trust but Verify to procure uranium ore and yellowcake.” The White Once I had retired from the Foreign Service in House chose to publicize this dubious report some September 2002, I did what I could to expose the serial three months after the intelligence community had distortions the administration was disseminating. I con- finally received the supposedly confirmatory source tributed information to a U.S. News and World Report

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cover story, “Decision Time,” in the The last straw for me was foreigners we did last time; U.S. Oct. 14, 2002 issue, agreeing to taxpayers will foot the entire bill allow some of my comments to be the failure to obtain an and the continuing costs of military quoted on the record. I wrote to occupation as well.” Sen. John Warner, R-Va., chairman updated assessment of In January 2003, I submitted a of the Senate Armed Services draft op-ed piece to the Washing- Committee, in response to his pub- Iraq’s weapons programs ton Post, arguing that the adminis- lic comment that we had to trust the tration’s conflation of all three president on Iraqi WMD. Ident- following the reinsertion unconventional weapons categories ifying myself as a constituent who under the “WMD” rubric was being had had access to the data in ques- of U.N. inspectors. used to scare people with mush- tion, I urged him to heed Ronald room clouds when the most trou- Reagan’s advice — “trust but veri- bling evidence involved the much fy” — when assessing President Bush’s characterizations less threatening chemical and biological weapons proof the intelligence. And at the end of the month, I deliv- grams. After Secretary Powell’s speech to the U.N. ered an address to my alma mater, Grinnell College, urg- Security Council in February 2003, I wrote to my ing that the U.S. government find its way back to “an home state’s principal newspaper, The Des Moines honest discussion of issues, without deception.” I Register. I pointed out the “non-barking dog” in his warned that “if we attack Iraq without U.N. authoriza- speech, which the press seemed not to have noticed: tion, we will not receive the 80 percent of war costs from Powell had not so much as mentioned the “uranium

THE REMINGTON

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from Africa” bombshell released by Unfortunately, the ing the stage when any questioning of the president just eight days earlier. I the president was interpreted as with- concluded in my proposed article that atmosphere during the holding support for our troops. And for the Secretary of State to leave this the temperature in Iraq was rising out of an 85-minute elaboration on lead-up to war was daily. the evidence against Iraq had to mean Still, it was my hope that the pas- he was rejecting its validity. Neither not propitious for sage of a strongly-worded U.N. reso- op-ed was accepted, however. lution in November and the subse- Unfortunately and ironically, the good investigative quent return of U.N. inspectors atmosphere during the lead-up to war would obviate the need for military was not propitious for good investiga- journalism. action, making such action politically tive journalism. The press was busily unviable for the president. When, embedding itself in the U.S. military only weeks before the invasion, the and discussing how the war was to be pursued. The 24- U.N. succeeded in forcing Saddam to destroy his inven- hour news channels were ramping up their ad campaigns tory of al-Samoud short-range ballistic missiles, which for coverage of the war with martial music and dramatic had demonstrated a range in excess of that allowed by footage of our forces in the field. Congress had already U.N. restrictions, I felt that a critical corner had been gone through an unwelcome vote on the issue in October turned. Surely the president would not proceed in the 2002, and most members were not inclined to do so face of an increasingly tight inspections regime and the again. By February 2003, the advancing war was enter- absence of Security Council support for an immediate

2000 N. 14th Street ■ Suite 500 Arlington, VA 22201 Telephone (703) 797-3259 Fax (703) 524-7559 Tollfree (800) 424-9500

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attack. But I was wrong, because I did For President Bush, age in the era of the Vietnam War — not fully understand that, for the pres- a war based on official deceptions. ident, the WMD issue was an excuse the WMD issue was an The failure of several administrations rather than a real reason for war. to speak honestly to the American I remember wondering as I head- excuse rather than a people about Vietnam cast a long ed home to Arlington from the State shadow over the 20th-century histo- Department on my last day as a real reason for war. ry of the United States. … Foreign Service officer what the “At the beginning of a new centu- future would hold during my upcom- ry, and at the end of my own career, ing “personal sabbatical.” I would never have imagined I witnessed how the Bush administration consistently that a year later, I would be heading to San Francisco to distorted the intelligence information available to it in receive the 2003 “Citizen Watchdog Award” from the order to justify an attack on Iraq. … However benefi- Center for Investigative Reporting for speaking out on cial the removal of Saddam Hussein proves to be for distortions by government. the Iraqi people, I believe the U.S. invasion and occu- The Center described me as “the first member of pation of Iraq has weakened U.S. national security and America’s intelligence community with active knowl- has weakened American democracy. While making the edge of the (Iraqi unconventional weapons) case to best of a circumstance abroad we cannot undo, we come forward and publicly question the way intelli- must also seek to restore the integrity and credibility of gence was used to make the argument for war.” My our own government at home. Our democracy cannot acceptance remarks included these words: “I came of otherwise flourish.” ■

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OPERATION IRAQI FREEDOM: THE ARAB REACTION Adam Niklewicz

THE WAR AGAINST IRAQ HAS GREATLY EXACERBATED AN ALREADY WIDESPREAD MISTRUST OF THE U.S. IN THE ARAB AND MUSLIM WORLDS. HERE IS THE VIEW FROM EGYPT.

BY KHALED ABDULKAREEM

t is already one year since the U.S. military invasion of Iraq kicked off. The U.S. occupation forces are still in Iraq. And so is the resentment of those forces in the rest of the Arab world. A lot has changed since PresidentI George Bush gave the go-ahead for the unprecedented U.S. military occupation of an Arab country. There have been some changes for the worse, while admittedly there have been some good developments for the Iraqis, depending on who is talking. The one sure change for the worse, however, is the way the majority of Arabs and Muslims view the U.S.

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In the weeks and months before At one point, the ruling public. Aware of the degree of the March 19, 2003, invasion, anger during and after the war, how- dubbed “Operation Iraqi Freedom” National Democratic ever, the government allowed anti- by Washington, the Bush administra- war demonstrations — to avoid a tion’s assertion that Iraq was deter- Party organized anti-war worse, anti-government explosion. mined to produce weapons of mass At one point, the ruling National destruction and still possessed such demonstrations of its Democratic Party organized anti- weapons was touted to justify the war war demonstrations of its own as against Iraq. These claims were met own as proof that the proof that the government’s senti- with skepticism in the Middle East, ments were with the people. where America’s decades-old pro- government’s sentiments A year later, opposition to the Israel attitude had already under- war on the streets of Cairo is still mined trust. were with the people. intense. True, no massive demon- Now the worst-case scenario has strations have been organized represented itself. As Iraq’s WMD cently in the Egyptian capital, but program gradually moved from what Washington paint- the U.S. occupation of Iraq remains a sensitive subject ed as an unquestionable fact to a fiction in the eyes of for the public. many, and a deliberate fabrication in the eyes of others, We do not find this clear consensus, however, among that which Arabs and Muslims both believed and feared the elite. The Egyptian political scene has witnessed a has proved true: the world’s only superpower was lying. tense clash between the liberals, who tacitly, and some- And if the world’s superpower was lying in its justifi- times openly, backed the use of force in Iraq, and the cation for invading Iraq, this line of thought goes, it leftists, nationalists and Islamists who vehemently must be lying now while running Iraq and reshaping its opposed the war. “While keen on expressing its opposi- future. And it may lie again to justify another invasion tion to military action, the Egyptian government always of any country apparently hostile to U.S. policies, coun- drives the point home that Saddam Hussein’s regime is tries such as Syria or Iran perhaps. to blame for the regional complications,” says Hazem Simply put, the war against Iraq has greatly exacer- Mounir, an Egyptian journalist. “[And] liberals, on a bated an already widespread mistrust of the U.S. in the massive scale, maintain that removing Saddam Hussein Arab and Muslim worlds. from power was impossible without outside intervention.” A Growing Debate The war critics dub the war a flagrant American While anti-war sentiments predominate in most attempt to control oil resources in the Gulf region, Arab countries (with the exception of Kuwait), the past reshape the Middle East according to its terms and months have witnessed a growing debate on what hap- serve Israeli interests. The high-sounding moral pened, why it happened and what may happen to the ideals of the Bush administration have never made Arab region in the coming years. After all, Iraq has sense or carried weight among the war critics in always been a key Arab player. Egypt, or for that matter in the Arab and Muslim Egypt, the most populous Arab country, saw massive worlds at large. anti-U.S. demonstrations in the run-up to the war. Organizing a rally in Egypt is not a free pass, whatever What About Reform? the cause. The Egyptian government puts tough “One year after the invasion, there has not been a lot restrictions on the expression of angry sentiments in of change on the political stage in Egypt vis-à-vis the U.S. presence in Iraq,” says Mounir, who works in the Khaled Abdulkareem is the Washington correspondent Cairo Bureau of the London-based Al-Hayat, a leading for Egypt’s Middle East News Agency. The views Arabic-language newspaper. “There is no daylight reflected in this piece do not necessarily reflect the posi- among politicians and commentators of different ide- tions of MENA. ologies on the need to end the occupation.” Mounir,

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however, says that the government, backed by some lib- instructions to follow a clearly drafted line in covering erals, believes that elections should be held and Iraqi developments in the war against Iraq. It was forbidden political structures put in place before U.S. troops leave. to refer to the U.S. military invasion as a “U.S. occupa- Those against the war from the very beginning want to tion of Iraq” or to describe Iraqi civilians killed in the see U.S. troops out immediately. war as “victims.” At the same time, Yemen’s Satellite Some American pundits, along with top U.S. offi- Channel was to stay away from talking about any of the cials, argue that the occupation of Iraq may lead the way Arab countries contributing to the war, such as Kuwait for a dramatic change in the Arab world toward democ- or Qatar. racy. Their belief is that the U.S.-led effort to draft a Even though Yemen was busy arranging for elections new constitution, hold free elections for a democratic as the war in Iraq began, the invasion did not appear government in Iraq and ensure respect for women will high in the run-up to the April 27, 2003, polling. And serve as a model for the rest of the Middle East. In the Yemen’s Ba’thists, believed to be aligned with Saddam, view of a prominent analyst associated with the call for did not get even one seat. reform in Egypt, however, it is having the opposite “Because the media in Yemen is extremely partisan, effect, stymieing the cautious moves toward reform every group paints the war according to its politics,” says already under way. al-Sofe. “Nationalists carry on with their fiery anti- “Since the Iraq occupation, various political forces, American position, while the government-run media including the Muslim fundamentalists, the nationalists are suffering from a scandal because of the conflicting and the professional associations, have developed a high state instructions.” sensitivity toward reform,” says Abdel-Moneim Sa’id, director of the Al-Ahram Center for Political and The Palestinian and Syrian Responses Strategic Studies, a leading semiofficial think tank in For better or worse, the Palestinians are always in Egypt. the spotlight. Despite attempts by the Palestinian Sa’id says that the reforms are now seen either as a Authority to disassociate the Palestinian cause from response to U.S. dictation or as a conscious move Saddam during the Iraq War, there were some pro- toward adopting the U.S. model of political and social Saddam rallies in the Palestinian Territories. reform — and both are unpopular among Egyptians. “The invasion of Iraq has been a shock to the Palestinians. Saddam Hussein was known for his declared Official Caution in Yemen backing for the intifada and overt support for the Pales- From the Arab world’s most populous nations to tinians,” says Rami Almeghari, editor at the Palestinian Yemen, one of the poorest countries in the region, sen- State Information Service. The pro-Israeli public rela- timent toward the continued U.S. occupation of Iraq is tions machine used reports of Saddam’s financial support almost the same, though details of context differ. for families of Palestinian suicide bombers, referred to in Yemen, which has had first-hand experience in what it the region as martyrs, to demonize the Palestinians as means to take positions in regional conflicts, kept quiet “terrorists.” on March 19, 2003. During the 1990-91 Persian Gulf Though the Palestinian Authority has been extreme- crisis, Yemen had stood against the use of force against ly cautious in dealing with the war and reacting to the Iraq, and what was perceived as a pro-Saddam position developments on the ground, Almeghari says, the had its price. Palestinians draw a similarity between the tactics of the “Things were different this time,” says Nabil al-Sofe, U.S. occupation forces in Iraq and the Israeli occupa- editor-in-chief of the Yemeni weekly Al-Sahwa. “This tion forces on their own soil. was due to the loss of one million Yemeni jobs in the Elsewhere, apart from the Iraqis themselves, the Gulf states after the 1990-91 crisis, deterioration of Syrians are most directly affected by the continued U.S. Yemen’s relations with its rich Gulf neighbors, the heavy occupation of Iraq. Caught between the Israeli army blow suffered by the Yemeni economy and the worsen- occupying the Golan Heights in the west and the U.S. ing of living conditions,” he explains. occupation army in Iraq to their east, the Syrians cannot The state-run media in Yemen were given stringent help but think of both armies as one enemy.

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“Every day that passes with the Religion is back strongly For their part, liberals in the U.S. forces remaining in Iraq, nega- Arab world have taken the shock tive sentiments of the Syrian people on the scene, as is and anger over the Iraq War to sig- toward the U.S. move up. The peo- nify the region’s weakness and are ple have no doubt now that the U.S. indicated by the fact that calling for a distancing from many is simply serving the Zionist blue- of the traditional values, nationalist print in the region, and that the number of women ideals and Islamic teachings revered American calls for democracy are by the sweeping majority. “Arabs nothing but a Trojan horse,” says deciding to wear the must stop dwelling in the past. Nabeel Saleh, a Syrian journalist. They should reinvigorate their soci- According to Saleh, the worst- Islamic headscarf (hijab) eties by shaking the rule of dicta- case scenario for the Syrians is the tors, by modernizing Islam, by revi- possibility that a civil war will flare is on the rise. talizing the forces of enlightenment. up in Iraq: memories of the fero- America, despite its flaws, has cious civil war in neighboring Leb- helped the Iraqi people to get rid of anon are still very much alive. the most brutal regime,” says Said Ghazali, a Palestinian Meanwhile, Kuwait, which has been granted the sta- journalist resident in East Jerusalem. tus of a non-NATO strategic ally of the U.S., stands out in “Few of the commentators, who are university acad- stark contrast to this portrait of anger and mistrust. emics, ex-generals and top former officials, have point- During the war, Kuwaitis staged pro-war rallies in the ed to our own ailments. We only blame others. It is the streets, while other Arabs shouted anti-U.S. slogans. In fault of the West; it is the fault of the U.S. neo-conserv- the months after the war, the Kuwaitis did not care to dis- atives; it is the fault of the Jewish lobby. At times we cuss whether or not the war was justified given that no seem to revel in the role of persecuted and occupied weapons of mass destruction had been found. Instead, victims,” Ghazali wrote in The Independent. they are busy attacking pan-Arab nationalists, ridiculing Such voices appear in some electronic publications members of the anti-occupation camp as “Saddam’s and newspapers in the Arab world, but they are not orphans” and openly aligning themselves more with the popular among Arabs and Muslims at large. In many U.S. cases, the proponents of such views cannot make them in public or on TV screens, but instead confine them- Liberals Isolated selves to limited audiences. Amid fears of future U.S. military adventures in the The war in Iraq, meanwhile, has boosted the popu- Arab region, people across the Arab and Muslim worlds larity of a prominent Egyptian writer, Fahmy Howeidi. have a heightened sense of their identity. Religion is Howeidi recently wrote a series of articles in Al-Ahram back strongly on the scene, as indicated by the fact that titled “Feud In Iraq,” in which he accuses the U.S. of the number of women deciding to wear the Islamic trying to divide Iraqis along sectarian and religious lines headscarf (hijab) is on the rise. Many Muslims are as part of a “divide-to-rule” strategy. struggling against attempts to modernize the school cur- If anything, the U.S. invasion of Iraq has further fueled ricula out of deep-seated fear that the Bush administra- mistrust toward the U.S. among Arabs and Muslims. tion is behind the called-for changes in the educational Coupled with a growing resentment of American policies, systems to reduce the presence of religion in Muslim this lack of trust is not going to be rectified by launching societies. U.S.-funded TV and radio stations to give the U.S. a The war against Iraq has given rise to a heated facelift. Rather, there is a real need for a deep under- debate between the Western-oriented liberals, who standing of the region’s grievances, a true desire to bridge support the war and advocate U.S. policies, on the one gaps with Arabs and Muslims, and concrete moves toward hand, and the nationalists, Islamists and leftists, who a dramatic change in U.S. policies in the Middle East. have long-standing doubts about the “war on terror” That sounds like a far-fetched expectation. It’s unavoid- and the invasion of Iraq. able, however. ■

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ON THE GROUND IN POSTWAR IRAQ Adam Niklewicz

FOREIGN SERVICE PERSONNEL AND THEIR FAMILY MEMBERS WHO HAVE SERVED IN POSTWAR IRAQ SHARE SOME OF THEIR EXPERIENCES.

ditor’s Note: We recently sent an AFSANet message inviting Foreign Service personnel (and their family members) who have served in Iraq since the war to recount their experiences there. Some of their responsesE describe the physical, logistical and other challenges they have faced, and how they overcame or worked around them to do their jobs. Others focus on the texture of daily life in postwar Iraq. But they all exemplify the best traditions of the Foreign Service. Our thanks to all who shared their stories. — Steven Alan Honley, Editor

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Training for Baghdad The chic fashion wear that when you went out the door you To help rebuild Iraq, what was the would never encounter what you best training to work at Jay Garner’s in Baghdad was a expected. But whatever you did Office of Reconstruction and Humani- encounter, it would make your head tarian Assistance? Arabic language? flak vest and Michael hurt, and put maximum strain on your Certainly helpful, since many of Iraq’s ingenuity, inventiveness, patience and English-speaking civil servants, given Dukakis-style helmet. sense of humor. their past associations, were looking for So much for my training time “on other employment. Iraqi history and the street” in Iran. The rest of my time area studies? Also useful, given the baffling duplication there, spent doing hard time in the cells, was much less of political groups and the fog of ethno-religious politics, fun, but still excellent preparation for Baghdad 24 years in which alliances change daily and outside powers back later. It taught me how to cope with bugs, bad food, rival groups simultaneously. And don’t forget about com- senseless rules, infrequent showers, sweaty roommates in bat training: the chic fashion wear in Baghdad was a flak close quarters, poor sanitation, dirty clothes and isolation vest and Michael Dukakis-style helmet. from the outside world. In both situations I became a But all the above missed the essentials of coping with pack rat, hoarding precious objects such as plastic spoons, life in Baghdad in the earliest days of the ORHA: an Iraqi paper, detergent, candles and matches. society that found itself without moorings after decades Baghdad in April and May 2003 and Tehran in the of rigid dictatorship; and staff living conditions that vio- summer and fall of 1979 were not entirely the same. But lated all standards of health and decency. What was the much of what we saw in Iran — the uncertainty, the best training for that? For me, it was my experience over hopes, the new possibilities and the anxieties — we saw 20 years before: spending 75 days as an embassy political among our Iraqi friends 24 years later. I also learned, officer on the streets of post-revolutionary Iran in the once again, that one can survive bad food and bad smells, summer and fall of 1979; and then spending 444 days, and that even an infrequent shower can be a joy to be beginning Nov. 4, 1979, in the Ayatollah Khomeini’s jails recalled and savored for days. as a hostage, or “guest,” of the Islamic Republic of Iran. — John Limbert Those first 75 days were the best of my 30 years in the Amb. Limbert is president of the Foreign Service. The next 444 were the worst. But they American Foreign Service Association. were both excellent preparation for Baghdad in the spring of 2003. In that first period I had to work in a soci- Diplomatic Maneuvers ety where all the certainties — for better or worse — of When I signed on as Senior Coalition Adviser to the a regime that had once seemed invulnerable were gone. Iraqi Foreign Ministry, I understood that my job would In both cases, nothing fixed had yet replaced the earlier, be to go to the ministry, take the elevator up to the min- harsh system, and ordinary citizens, now able to talk ister’s office, find out who was in charge and take it from freely for the first time in their lives, saw both enormous there. The reality was very different. Daily life in new possibilities and dangers. The immediate question Baghdad combined elements of a backpacking trip and both in Tehran in 1979 and Baghdad in 2003 was: “Now prison camp. It took three days just to link up with mili- that the tyrant is gone, what will become of us?” The tary civil affairs officers who could physically get me to larger question was, and is: “Now that we are masters in the ministry. We found the main building systematically our own house, which of us shall be masters and in what burned and looted by departing Saddam loyalists, who kind of house?” had stripped the outbuildings of all windows, furniture Iran in 1979 and Iraq in 2003 were settings a Foreign and electrical and plumbing fixtures. Windblown docu- Service officer dreams about. There were no congres- ments served as ground cover. sional delegations to care for, no receptions to attend, no An affable young Iraqi materialized out of the rubble briefing memos to prepare, and no embassy housing and identified himself as Hamid from Protocol. Hamid committees to serve on. There was only the reality of agreed to get word to as many ministry employees as pos- competing social and political visions, and the certainty sible, and we would all meet back at the ministry in two

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days. Soon after Hamid departed, I The immediate question Foreign Ministry that became the had second thoughts. Had I set up main channel for communicating an ambush? To my relief, two days both in Tehran in 1979 with Iraqi posts abroad. later 150 employees, not an ambush, Three-quarters of the Iraqi were milling around as I arrived. We and Baghdad in 2003 ambassadors elected to return, a found in that group the nucleus of a pleasant surprise. One day in early small steering group to run the min- was: “Now that the June, I interviewed in rapid succes- istry. sion the returning Iraqi ambas- Gaining control of Iraq’s 69 diplo- tyrant is gone, what will sadors from Tripoli, Tehran and matic posts abroad was my highest Damascus. All were eager to coop- priority. High-ranking Ba’thists and become of us?” erate even though they knew they Iraqi intelligence operatives sta- would not keep their jobs. The oth- tioned abroad still controlled signifi- ers, with one or two exceptions, qui- cant resources. I worked with the steering group on a etly disappeared. simple message calling on heads of diplomatic missions to Throughout this adventure I was blessed with superb cease representing Iraq, to secure all files, passports and assistance from retired FSO Allen Kepchar, Lt. Col. Alex money, and to return to Baghdad within 30 days. The Sonski, Amb. Radu Onofrei from Romania and Jacqueline- biggest challenge was the almost complete lack of com- Lawson Smith from the British Foreign Office. But the munications equipment. After a young employee typed real credit for our success must go to our Iraqi colleagues, the message in Arabic on his laptop, we rescued some individuals of great skill and character. One in particular, usable official stationery from the rubble, and printed the Akila al-Hashemi, is engraved forever in my memory. message at Baghdad’s version of Kinko’s. We brought the Akila accepted an appointment as the first woman on the message, typed and signed by the senior Iraqi in the min- Ministry Steering Group in early May. In June, she ably istry, back to the palace, which had the only working scan- led an Iraqi delegation to a U.N. donors meeting in New ner in Iraq. Then we e-mailed the scanned message to York. In July, she was one of three women appointed to the Iraqi embassies in Amman and Damascus who, in the Iraqi Governing Council. In September, assassins turn, forwarded it to other Iraqi posts around the world. took her life. Having known her and many Iraqis like her Finally, we set up a Hotmail e-mail account for the during my brief stay in Baghdad, I am confident that Iraq can and will emerge from the nightmare of Saddam’s rule. — David J. Dunford Amb. Dunford is a retired FSO in Tucson, Ariz.

Saddam’s Arrest: Reactions from Najaf Over the past few months there have been few events of greater significance on the international political scene than the capture of Saddam Hussein. Rather than discussing where I was or what I was doing when the arrest took place, however, I prefer to discuss two experiences that shaped my opinion regarding

George Farag the impact of this event on the people of Iraqis in Najaf gather to read about Saddam Hussein’s capture. Najaf, Iraq.

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The capture of Saddam Hussein Daily life in Baghdad appeared different. Everyone was is particularly important in the holy closely huddled, staring at the wall city of Al-Najaf due to the vast and combined elements of a of the shrine, and remaining unchar- brutal devastation he wrought there acteristically quiet. I joined the after the Persian Gulf War. Evi- backpacking trip and group to steal a look at what was of dence of this are the mass graves particular interest. As I approached located in the northern section of prison camp. the wall I realized that there was a Najaf and an area close to the Imam newspaper clipping of Saddam’s Ali Shrine, which Hussein leveled arrest taped to the shrine and the after the 1991 intifada. people crowded around were reading it. The article con- The day after Saddam’s arrest I spent most of my time tained photos of the bearded and haggard Hussein with a in the Sahn, the market surrounding the Imam Ali detailed description of his arrest (see photo, p. 56). Shrine. If there was any location in Najaf for one to The group stared at the pictures and read the article in gauge the reaction of the people to this dramatic event, disbelief and shock. There were no animated discussions this was the place. Walking in the Sahn, I observed a or wild cheering as one may have imagined there would familiar sight. Large groups of people were gathered at be. People were not chanting “death to Saddam” or sim- the wall of the shrine. Under normal circumstances ilar slogans. Instead there was complete silence and what there are vendors selling pictures of the Imam Ali or appeared to be great reflection on the historic event. sadinet al sahn (assistant custodians of the shrine) while At this point I bought falafel sandwiches and had engaging in public discussions. However, this gathering lunch with a friend, Hassan, at his sibha (prayer bead

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shop) in the Sahn. As we ate and Surprisingly, there were and secret documents since the intifa- conversed, an acquaintance of his da. He had promised himself that he named Waleed entered. He had no animated discussions would uncover and dispose of those been a military participant in the items once Saddam was captured, intifada against the former regime. or wild cheering in Najaf and he kept his promise the night of The conversation quickly focused on the arrest. There was a definite sense Saddam’s arrest. At the end of our at the news of Saddam’s of pride as he showed me the hiding conversation, Waleed offered to place. “The next time I fix the ceiling show me how he celebrated the capture. it will be for good,” he exclaimed. arrest of Saddam. I followed him The images that the world wit- into a building located on one of the nessed on various news programs in smaller streets in the shrine area. I early December echoed the unham- had reservations about entering the building with this pered celebration that took place in some Iraqi streets perfect stranger, but it constituted a rare opportunity for following Saddam Hussein’s capture. But the more me to witness a segment of Iraqi society inaccessible to somber reactions I was fortunate enough to witness in CPA personnel. Najaf that afternoon also symbolize the patience, dedi- On the second floor there was a tiny, two-room apart- cation and pride of the Iraqis. ment. He led me into one of the rooms and above the bed — George Farag I noticed a strange, large hole in the ceiling. He then con- Public Affairs Officer, CPA fessed that it was in this space that he hid illegal weapons Najaf, Iraq

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“U.S. Consulate Mosul” After our troops set up the city because gangs of looters The day after the Iraqi Army capit- were roaming the city, stealing and ulated to U.S. Forces in northern Iraq the airport as their destroying property. Some entrances (April 8, 2003), the forward and to neighborhoods were barricaded advanced operating bases for the 10th primary base, it became and people stood guard at informal Special Forces Group and their sup- “checkpoints.” port personnel were relocated to the unofficial American The following day, I went out with Mosul International Airport in Mosul, a Special Forces team to translate for Iraq. As we convoyed to the airport, consulate in Mosul. them as they selected a building to use Iraqis were cautiously observing the as their “team house.” The Iraqis were U.S. forces moving into their city. It very curious to see real live Amer- was easy to see they were waiting to see what we would icans. Every time we stopped, a crowd would quickly form do as an occupying force. around us asking questions. They seemed willing to help My first impression upon arriving at the airport was in any way they could. The Iraqis soon realized the “evil that there had been a military battle there. Trash and Americans” (according to Saddam’s regime) were actually debris were everywhere and most of the windows were friendly and concerned about the rebuilding of Iraq for the broken. I learned, however, that the destruction was benefit of the Iraqi citizens. Whenever American military caused by Iraqis looting and vandalizing property after vehicles traveled through the city, soldiers would usually the Iraqi Army and the police force abandoned their get smiles, thumbs-up signs and waves from the Iraqis — posts and their duties. Security was an issue throughout especially the kids and teenagers.

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MARCH 2004/FOREIGN SERVICE JOURNAL 59 F OCUS

After our troops set up the airport as their primary Residents soon began selling cigarettes, candy and base in the city, it became the unofficial American con- soda to U.S. soldiers in front of the gates. This was ben- sulate. Iraqis began to come to the gates requesting eficial for both parties and helped build rapport with the everything from visas for the United States to telephone Iraqi people. calls to relatives in other countries. Generally, the com- But they became impatient within days of the mon concerns at this time were security from looters, American occupation because there was no immediate jobs, repairing utilities and availability of gas. improvement in the quality of life for most people. A public affairs campaign was immediately put into Unfortunately, the Pentagon spent so much time plan- action in the form of television ads that discouraged ning and implementing a highly successful military cam- Iraqis from civil disobedience and encouraged them to paign that it didn’t plan how to immediately implement set up their own system of government and go back to strategies that would have made it clear what the their jobs. But the difficulty with going back to work was Americans planned to do to improve the quality of life for that no one wanted to leave their homes and families Iraqi citizens as promised. Nor did the Pentagon have an unprotected from looters. Also, the banks had all been immediate plan of action for dealing with Saddam’s loyal- looted and there wasn’t money available to pay salaries. ists or with Ba’th Party members. And the coalition Many Iraqis claimed to have information regarding missed the opportunity to negotiate early with those who WMD sites, the location of personnel in Saddam’s regime are driving the insurgency against security forces in Iraq and locations of weapons caches, as well as information today. on a huge variety of other topics they felt American mili- But whether the occupation of Iraq was justified or tary personnel might consider important. Several of not is immaterial at this point. The challenge is to pro- them even offered information in exchange for American vide a stable environment for the fledging Iraqi govern- citizenship. ment until it can function securely. For until it becomes certain that the insurgency has failed to intimidate the new political leadership, Iraqis will be afraid to offer assistance to coalition forces or the Iraqi police and security forces for fear of reprisals. America has promised repeatedly that the occupation of Iraq will result in a better life for Iraqi citizens and will lower the threat of terrorism in the world. If America does not maintain its presence in Iraq until the new government is secure, both of our promises will be unful- filled. The whole Arab community — in fact, the entire world — is watching. — John Malas A veteran Army interrogator and Arabic linguist, John Malas was part of a Department of Homeland Security team attached to the 10th Special Forces Group in northern Iraq during April and May 2003. He is married to Jennifer Harrison, a Foreign Service secretary currently working in the Diplomatic Courier Office in Frankfurt.

A Birthday Celebration I am a retired FSO who served both as a political ana-

Herminio Cardona lyst in State’s Bureau of Intelligence and Research and as U.S. Marine Vanessa Cardona and her father, retired an information management technical specialist in the FSO Herminio Cardona, meet in Camp Doha, Kuwait, Bureau of Information Resource Management. Before in April 2003. that, I spent seven years in the Army, and then served as

60 FOREIGN SERVICE JOURNAL/MARCH 2004 F OCUS

an Army Counterintelligence Special Agent in the able to get together for a few precious hours to celebrate Maryland Army National Guard. her 19th birthday (see photo, p. 60). I thank the Marines My daughter, Helga Vanessa Cardona-Perez, joined for adequately training my daughter so that she could the Marines straight out of high school, completing return from Iraq in one piece. I also can’t thank enough basic training and combat training before completing her chain of command for taking her to Camp Doha to intelligence specialist training. Her intelligence class was visit with me on her first birthday away from home. accelerated to graduate three weeks early so they could I also want to mention that my son Ivan is an Army be shipped out to Kuwait with the 1st Marine Expe- medic stationed at Ft. Drumm, N.Y., and will be going to ditionary Force. Once there, she volunteered to go into Kandahar this year. And my brother Victor, a sergeant Iraq with the 1st MEF invading force of Operation Iraqi first class, is an explosives ordinance disposal expert now Freedom. serving in Afghanistan. When the war began, I could not stand watching the I never pressured, or even encouraged, my children or war on MSNBC from home while my daughter was in my younger brother to follow in my footsteps. But I am harm’s way. So I looked for employment in Kuwait to be honored and extremely proud of their decision to serve near her, and was fortunate to find an opportunity as a con- our country. tractor with ITT Systems, serving with the 11th Signal By the way, my daughter, now a lance corporal, is Brigade at Camp Doha. At that time, Vanessa was sta- returning to Iraq later this year for a second tour of com- tioned with the 1st MEF at Camp Commando, also in bat duty. Kuwait. — Herminio F. Cardona As a result, on April 28, 2003, my daughter and I were Cape Coral, Fla. ■

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MARCH 2004/FOREIGN SERVICE JOURNAL 61 BOOKS

Democracy: fair, the author seems to recognize the Zakaria leaves the point. After praising Russian President For Better or Worse Vladimir Putin as a “liberalizing auto- reader wondering crat,” he admits: “There is always the The Future of Freedom: Illiberal how the process of possibility, of course, that Putin, or Democracy at Home and Abroad democratization more likely one of his successors, will turn out to be a bad czar and use his Fareed Zakaria, W.W. Norton, New should work. York, 2003, hardcover, $24.95, 286 enormous power for less noble goals. pages. It has happened in the past.” Indeed. No analyst of global democratiza- REVIEWED BY ELIZABETH CLARK tion believes that elections by them- racy is like. At one point, he declares selves create a fully functioning The publication of Fareed Zakaria’s that democracy represents “as broad a democracy. However, Zakaria’s elec- The Future of Freedom: Illiberal dispersal of power as possible.” But tion-phobic approach to democratic Democracy at Home and Abroad is an elsewhere he says that “The Western development means that he does not important event. Zakaria, Newsweek’s model of government is best symbol- explore the more fruitful model of “do enormously influential foreign affairs ized not by mass plebiscite but the it all at once” democratization. This is editor, takes as his ambitious goal impartial judge.” the model that the U.S. has actually answering the questions, “Is democra- He also repeatedly refers to “demo- had to follow in Bosnia, Afghanistan, cy taking hold abroad?” and “How well cratically elected regimes” without dis- Haiti and Iraq, and for which there is a is democracy doing here in America?”. tinguishing between elections that body of precedent (well analyzed in The answer in both cases is, he meet international standards, involving the 2003 Rand study, “America’s Role laments, “not well.” broad criteria beyond election-day per- in Nation Building”). Blaming “pre- Zakaria’s views on sequencing dem- formance, and fraudulent, rigged elec- mature democracy” or the policy of ocracy-building, meticulously detailed tions. Zakaria sees the absence of free “encouraging elections” misses other, here, have become conventional wis- and fair elections in the “limited” more likely targets for democratic fail- dom among foreign affairs profession- democracies he praises — Jordan, ure. Problems in Bosnia may have had als and commentators. Thomas Fried- Singapore, Malaysia and Morocco — more to do with over-elaborate institu- man, for instance, recently endorsed as a minor flaw. Indeed, he also refers tional design of the Dayton Accords in one of his own columns Zakaria’s to Malaysia as an unqualified democra- than early elections per se. Further- consistent message that “elections cy. more, “elections first” is probably a should come last,” after a moderate Nor does the confusion end there. better description of the successful center has had time to emerge and In recoiling from elections as a slippery democratization of the former com- “sink roots, learning to use tools of slope to mob rule and the plebiscite, munist countries of Eastern Europe, the institutions of liberty: a function- Zakaria leaves the reader wondering whose eagerness to get into the E.U. ing judicial system, a free press, free how the process of democratization forced compliance with democracy speech, economic reform, civic insti- should work. What is the mechanism requirements — most crucially, fully tutions and multiple political par- that will keep a “liberal autocrat” liber- free and fair elections. ties.” To that list The Future of al if he does not have to fear being put Despite such shortcomings, The Freedom adds reaching a specific out of power peacefully in fully demo- Future of Freedom contains many far- level of per-capita GDP ($6,000 for a cratic elections? Why would multiple ranging and rich insights on fostering failure-proof democracy). political parties develop? Why would political change. In his long, illuminat- Yet Zakaria is anything but clear in judges stay incorruptible? What would ing section on the pathologies of Islam describing what a functioning democ- sustain an effective free press? To be Zakaria makes timely arguments for

62 FOREIGN SERVICE JOURNAL/MARCH 2004 B OOKS

inclusion of fundamentalists (not ter- Proclaiming Revolution: Bolivia in state, fail to represent citizen interests, rorists) in the mainstream of political Comparative Perspective. The book and are unable to build a national con- life. Here his step-by-step approach contains 13 papers delivered at a 2002 sensus on what good government makes eminent sense: “get the politics conference at Harvard marking the means. Gamarra suspects the system and economics right (and) culture will 50th anniversary of the 1952 Bolivian will be unable to address the crises the follow.” Revolution, plus two chapters by the nation will face in the coming years — As for America, Zakaria clearly sees editors introducing and summarizing coca cultivation, economic stagnation, the recent gubernatorial recall in the material. indigenous demands — and Bolivia California as democracy run amok. Representational democracy in will therefore face a prolonged period His remedy, however, is to insulate Bolivia has never succeeded in putting of social conflict. decision-makers from democracy and down roots. Indeed, the most endur- Molina agrees that the future of resuscitate the old “power elite,” with ing legacy of the 1952 Revolution was Bolivia does not lie with the traditional its sense of public service, probity and the creation of a state only tenuously parties but with emerging grass-roots willingness to exercise authority — a connected to the population and too organizations that oppose the constitu- remedy that seems quixotic in the age weak to resolve bitter social divisions. tional system. He cites approvingly a of Enron, Worldcom and Parmalat. That is not to say that Bolivia did series of reforms begun in 1993 that not undergo as profound a transforma- redistributed power from the federal Elizabeth Spiro Clark, a longtime tion as Mexico had decades earlier, and level to the local level. As a result, the member of the Journal’s Editorial Cuba would experience only a few old system of national state patronage Board, was a Foreign Service officer years later. The short period from was dismantled, and political power from 1980 to 2000. A former fellow at 1952 to 1956 saw the adoption of uni- fragmented along territorial lines. the National Endowment for Demo- versal suffrage, agrarian and educa- Molina, in fact, says Bolivians have cracy’s International Forum for Demo- tional reform and the nationalization of never developed a shared set of secular cratic Studies, she is now an associate mines. Indigenous groups entered the doctrines necessary to create a nation. at the Institute for the Study of mainstream of society and the role of His account is essentially descriptive. Diplomacy at Georgetown University. the state expanded significantly, partic- His point is, whether you like it or not, ularly in the economy. the old system is breaking down. For Yet post-revolutionary Bolivia was him, the revolution did not create a still seriously flawed. The three most nation, and the increased pressure of Bolivia: insightful contributors to this collec- contemporary social conflict will fur- Timely Insights tion, Juan Antonio Morales, Eduardo ther weaken the state. A. Gamarra and George Gray Molina, None of this is good news for over- Proclaiming Revolution: Bolivia in provide a range of explanations for burdened desk officers following Comparative Perspective what went wrong. Morales maintains Bolivia or for Embassy La Paz. But Merilee S. Grindle and Pilar that the new government adopted a the book is very good news for those Dominago, eds., Harvard University state-led model for economic growth interested in deepening their under- Press, 2003, $24.95, paperback, 424 that resulted in dismal economic per- standing of Bolivian politics and soci- pages. formance from 1952 to 1995 and left ety. The authors debunk myths, the private sector near death. Policy prowl forgotten corridors of revolu- REVIEWED BY DAVID BOYLE decisions over-emphasized wealth re- tionary history, and skewer anyone distribution, isolated the country from foolish enough to disagree with them. On Oct. 17, 2003, Bolivian Presi- trade and capital, and fueled corrup- It is hard to imagine a more timely or dent Gonzalo Sanchez de Lozada tion and paternalism. helpful analysis of what is taking place resigned in the face of massive and Gamarra argues that Bolivian soci- in Bolivia today. ■ violent protests, touching off the most ety never completely accepted the idea serious challenge to constitutional of representative democracy in 1952, FSO David Boyle has served in Lagos, democracy in Bolivia in the last 21 and since then has shown widespread Malabo and Washington, D.C. He years. For many, the government’s fall disdain for the traditional parties and is currently desk officer for Bolivia was a surprise. It should not have the National Congress. Political par- in the Bureau of Western Hemisphere been, say the authors represented in ties exist as mere extensions of the Affairs.

MARCH 2004/FOREIGN SERVICE JOURNAL 63 IN MEMORY

Clark H. Billings, 68, retired Ellis V. Glynn, 83, retired FSO, Training Center and Penrose FSO, died Dec. 18 at his home in died Oct. 10, 2003, at his home in Hospital. He also honed his skills in Hickory, N.C., from malignant meso- Colorado Springs, Colo., where he his lifelong hobbies of trout fishing thelioma caused by asbestos. had resided for 23 years. and gourmet cooking. Mr. Billings was born Dec. 25, Mr. Glynn was born in Long Dorothy Mackey, his wife of 34 1934, in Bent County, Colo. After a Island, N.Y., on Feb. 18, 1920, the years, succumbed to cancer in 1984. five-year tour in the U.S. Navy at only child of James Edward and Three sons survive: Steven Glynn of sea and in London, he joined the Nellie (Scannell) Glynn. He joined Simi Valley, Calif., and Douglas predecessor agency of USAID in 1961. the U.S. Navy in 1942 and was trained Glynn of Denver, Colo., both born in During his 29-year career with USAID, as a naval aviator and machinist mate. Sri Lanka; and Mark Glynn of Mr. Billings served 22 years overseas in Assigned to the Pacific Theater Huntsville, Ala., born while Mr. Ethiopia, Tanzania, South Vietnam, Sri aboard the USS Bataan, Ellis flew Glynn and his family were assigned Lanka and the Philippines. Most of his with the 47th Torpedo Bomber to Montevideo. His 10 grandchil- work was in the program office, but he Squadron, where he earned the Navy- dren will also miss Mr. Glynn. A also served tours in the USAID/W Marine Corps Medal, the Bronze Star memorial service was held Oct. 15 in training office, in the liaison office for Medal, and the Purple Heart. Colorado Springs. ASEAN in Manila and in the communi- In 1946, after recovering from ty development office in Manila. He wounds, Mr. Glynn was selected as retired in 1990. the chauffeur for a U.S. delegate to Mr. Billings was evacuated from the United Nations, Mrs. Eleanor Frank P. Kelly, 66, retired FSO, Saigon on April 29, 1975, by heli- Roosevelt. While serving as Mrs. died Dec. 19 of cancer in Martins- copter from the embassy rooftop. He Roosevelt’s chauffeur, he met Doro- burg, W. Va. was involved several times in relief thy Jean Mackey of Erie, Pa., then a Born Aug. 5, 1937, in Jersey City, efforts when natural disasters struck, secretary for the U.S. delegation to N.J., Mr. Kelly graduated from Jersey and received several honor awards. the U.N. They were married in City State College and served in the Following retirement, Mr. Billings March 1948. U.S. Army (101st Airborne) from worked as a consultant to the USAID Mr. Glynn joined the Department 1961 through 1964. regional office for the South Pacific of State in 1948. During his 32-year He joined the Foreign Service in and with USAID/Jamaica, before career as a Foreign Service officer, he 1964, serving as a consular officer in returning to Washington to work for only accepted one assignment to the Bordeaux, Paris, Beirut, Okinawa and three years in the USAID/W Bureau United States, serving less than two Santo Domingo. Mr. Kelly retired in for Europe and the New Indepen- years in Washington, D.C. His over- 1986. Following retirement he dent States. seas assignments included Pakistan, engaged in consulting work and was a Mr. Billings is survived by three Sri Lanka, Uruguay, Israel, Taiwan, full-time grandfather. daughters, Tamara Guerrero of Fred- Trinidad & Tobago, Chile, Panama, Mr. Kelly is survived by his former ericksburg, Va., Christine Billings of Belgium and Colombia. He retired to wife Joan Kelly of Silver Spring, Md.; Burke, Va., and Trang Billings Esta- Colorado in 1980. his daughter Teresa Frazier and gassy of Seattle, Wash.; a brother, In Colorado, Mr. Glynn continued grandson Michael Frazier of Martins- James Ross Billings of Tucson, Ariz.; a his public service through countless burg, W. Va.; two brothers, Bill Kelly, sister, Nancy Gerlock of Cannon City, hours of volunteer work. He assisted a retired FSO, of Sevierville, Tenn., Colo.; and two grandchildren. at Meals on Wheels, the Olympic and Michael Kelly of Whitehouse

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Station, N.J.; and a sister, Patricia De Counsel Academy in White Plains, School in Pettisville, Ohio. In 1951, Lorenzo, of Woodridge, N.J. N.Y., and attended the University of he became an assistant professor in Bridgeport, in Bridgeport, Conn., the Ohio State University College of where she graduated with a degree in Agriculture, followed by the position chemistry. of business manager. Patricia (Pat) Giuntini Loh, 50, Besides her beloved husband of 25 In 1967, Mr. Pollock joined the Foreign Service specialist, died Dec. years, Anthony Loh Jr., Patricia Loh Foreign Service as a USAID project 6 in a car accident in Lima, Peru. leaves behind her parents, E. Robert officer in New Delhi. Assignments in Patricia Loh joined the Foreign Giuntini of White Plains, N.Y., and South Vietnam, the Dominican Service in January 2001 after a suc- Elizabeth Giuntini of West Harrison, Republic, and the Philippines fol- cessful 25-year career in the private N.Y.; a sister, Maureen Jarvis of lowed. He retired in 1988 as an agri- sector as a chemist, quality engineer Katonah, N.Y.; two brothers, Rev- cultural officer in New Delhi. and computer/network specialist. erend Robert J. Giuntini of Hunting- Mr. Pollock’s 1947 marriage to Her love of travel and discovery ton, N.Y., and Daniel Giuntini of Rosemary Jeffers ended in divorce. inspired her to make this dramatic Somers, N.Y. Twelve young nieces In March 1976 he married Tran Thi career change at an age when less and nephews and one grand-nephew Nhu Quynh, who survives him. adventurous souls are winding down will miss their warm and fun-loving Also surviving are three daughters, and planning for retirement. aunt. Mrs. Richard (Sue) Keys of Yuba City, Mrs. Loh’s first posting was to A celebration of Patricia Loh’s life Calif., Mrs. Matthew (Angia) Pfirsch Kuala Lumpur, where she served as was held Dec. 12 at the McMahon of Findlay, Ohio, and Ms. Lynn information management specialist Funeral Home in White Plains, and a Morrison of Columbus, Ohio; a son, officer from July 2001 until May 2003. funeral mass took place on Dec. 13 at James David Pollock of Lancaster, In September 2003, she was posted to St. Anthony’s Church in West Ohio; a brother, John D. Pollock of Lima, where she served with honor Harrison. In lieu of flowers the fami- Whitehouse, Ohio; 12 grandchildren; and distinction until the tragic acci- ly requests that donations be made to and one great-granddaughter. dent. the World Wildlife Fund or The A son, Ted Lee Pollock, a brother, In an unprecedented tribute, the Nature Conservancy. James Pollock and a sister, Virginia Embassy Lima computer server room Hartsook, preceded him in death. has been dedicated to her memory. Mr. Pollack’s body was donated to The memorial plaque, with an Science Care, Inc. for research and engraved photograph of Mrs. Loh, Ronald Howard Pollock, 80, a organ donation. Memorials may be contains this testimonial: “Pat was the former USAID official, died Dec. 14 made to the Pulmonary Fibrosis kind of person who brightens any at his home in Sun City, Ariz. Foundation, 1440 W. Washington room. Her warmth and humor were Mr. Pollock was born May 30, Blvd., Chicago, IL 60607 or Vista extended unreservedly; she brought 1923, in Waterville, Ohio, to Ben- Care Hospice Foundation, c/o Chris with her an infectious laughter and joy jamin and Mary (Barnes) Pollock. He Burris, 4800 N. Scottsdale Rd., Suite of life. She possessed a rare intelli- graduated from Grand Rapids High 3500 Scottsdale, AZ 85251. gence combined with common sense School in Grand Rapids, Ohio, and and a down-to-earth understanding earned a bachelor of science degree that is all too difficult to find in this in agricultural education at Ohio State world. She was a great friend and University. He earned advanced Clifford J. (Patrick) Quinlan, 81, invaluable colleague to whomever she degrees in agricultural economics and retired FSO and a founding member touched. And now she will be greatly agricultural business and marketing. of AFSA Upper Midwest, died Oct. 27 missed.” After serving in the U.S. Army dur- in Edina, Minn. Patricia Loh was born Jan. 7, 1953. ing World War II, he began his career A native of Minnesota, Mr. Quinlan She was a graduate of St. Anthony’s in 1948 working as a vocational agri- graduated from the University of School in West Harrison, N.Y., Good culture instructor at Pettisville High Minnesota with a B.A. cum laude in

MARCH 2004/FOREIGN SERVICE JOURNAL 65 I N M EMORY

international relations in 1948. He He taught Elderhostel and University master’s degree in international affairs received his B.S. in Foreign Service of Minnesota Extension courses, and at Johns Hopkins University’s School from Georgetown University in 1949. was a contributing commentator on of Advanced International Studies in He served in the U.S. Army Air Force radio and TV newscasts. He was a 1962. He then served three years in from February 1943 to November free-lance columnist for the Minn- the Marine Corps. 1945. eapolis Star Tribune, St. Paul Pioneer In 1965, Amb. Ransom joined the Mr. Quinlan, known as “Pat,” Press, Edina Sun Current, and the Foreign Service. He was posted to joined the Foreign Service in 1950, Washington Report on Middle East Tehran in 1967 as a consular officer, and during a 30-year career served in Affairs. and a year later detailed to the FSI Europe, Africa, South Asia and the Mr. Quinlan was a founding mem- Arabic language school in Beirut. In Middle East — his area of specializa- ber of AFSA Upper Midwest, and an 1969 he was transferred to Jeddah as tion. His A-1 class was trained as Kreis active member of the Minneapolis-St. a consular and economic officer, and Resident Officers for Germany (local Paul Committee on Foreign Rel- in 1970 he returned to State. Fluent governing persons who were then ations, the United Nations Association in Arabic, Mr. Ransom was thrice replacing Army officers in such posi- of Minnesota, the Arab-American Anti- posted abroad as deputy chief of tions), and Mr. Quinlan was posted to Discrimination Committee, Middle mission: to Sanaa (1975-1978), Abu Frankfurt. In 1951 he was transferred East Peace Now, and Interfaith Peace- Dhabi (1983-1985) and Damascus to Berlin as a commercial specialist. makers of Edina. A vigorous advocate (1985-1988). He was ambassador to He was posted to Karachi as a consular of closer cooperation between the U.S. Bahrain from 1994 to 1997. and political officer in 1953, then and the Arab world, Mr. Quinlan also During his career Amb. Ransom returned to State in 1956 to follow participated in the Upper Midwest was assigned to the National Security Berlin affairs. Two years later, he was Consortium for Middle East Outreach. Council staff (1973-1975) and to the sent to Kaduna as principal officer. Mr. Quinlan received the Depart- Defense Department as director of In 1962, Mr. Quinlan was detailed ment of State Meritorious Honor the Near East, South Asia and Africa to study Arabic at the FSI in Beirut. Award. “In recognition of his out- division (1978-1982). His honors in- After graduating in 1964, he served in standing efforts on behalf of the Arab- clude the Defense Department Dis- Yemen, Egypt, Turkey, Oman, Libya, American Community,” he received tinguished Service Medal, the De- and in the Department of State as the Alex Odeh Award from the Minn- fense Superior Service Award and two public affairs officer for the Middle esota Chapter of the Arab-American State Department Superior Honor East. Mr. Quinlan was principal offi- Anti-Discrimination Committee. Awards. cer in five of his ten posts abroad, and Mr. Quinlan is survived by his wife Amb. Ransom retired from the was responsible for opening three of Louise, sisters-in-law, nieces and Foreign Service in 1997, and found- these. Other “at home” assignments nephews. He was preceded in death ed an international consulting firm included on-loan duty at the Office of by his parents, a sister, Margaret, and that worked with investment and Economic Opportunity in Washing- brother, Robert. other projects in the Middle East. ton, D.C. (1970-1972) and diplomat- He was an adjunct scholar at the in-residence at Oakland University in Middle East Institute in Washing- Rochester, Mich. (1978-1979). ton, and a frequent lecturer on In 1979 Mr. Quinlan was assigned David M. Ransom, 65, retired Middle East topics. Amb. Ransom as an adviser on Middle East affairs in FSO, former ambassador and combined a great affection and deep the U.S. Mission to the U.N. in New Middle East specialist, died Dec. 4 cultural empathy for the peoples of York, where he was actively involved in New York City after a heart attack. the Middle East with a tough-mind- in negotiations to free the American Ambassador Ransom was born in ed attitude toward U.S. national hostages in Tehran. St. Louis and accompanied his father security interests. In 1980 Mr. Quinlan retired and on Air Force assignments early in his As board vice chairman of the moved back to Minnesota, where he life. He was a 1960 graduate of Rock Creek International School in was a constant voice for diplomacy. Princeton University, and received a Washington, Amb. Ransom played a

66 FOREIGN SERVICE JOURNAL/MARCH 2004 I N M EMORY

key role in creating the school’s in Amb. Ransom’s memory to the Office of the Special Assistant for Arabic-English program. Arabic program at the Rock Creek Disarmament and Atomic Energy and He was a collector of Middle International School. the office of the under secretary of Eastern carpets, an expert swimmer State for Economic Affairs. In 1962 and diver, an avid gardener at his he became deputy assistant secretary home in Washington, and an ener- of State for Atlantic affairs. getic farmer on his West Virginia J. Robert Schaetzel, 86, career As U.S. ambassador to the Euro- property. State Department officer and for- pean economic communities from Survivors include his wife of 38 mer ambassador, died of pneumonia 1966 to 1972, Mr. Schaetzel worked years, Marjorie Marilley Ransom of Nov. 7 at his home in Bethesda, Md. to strengthen U.S.-European rela- Washington; three daughters, Eliza- Born in Holtville, Calif., Amb. tions. Based in Brussels, he repre- beth Ransom of Washington, Kath- Schaetzel graduated from Pomona sented U.S. interests in negotiations erine Ransom-Silliman of Falls College and moved to Washington in with the European Iron and Steel Church, Va., and Sarah Ransom of 1942 as an analyst with the Bureau of Community, the European Economic New York; a brother, Clifford the Budget. He joined the State Commission and the Euroatom Ransom II of Baltimore; and two Department in 1945 as a special assis- Supply Agency. During this time he grandsons. The family requests that tant in the Office of International developed a reputation as a sharp- in lieu of flowers, donations be made Trade Policy, later moving to the tongued diplomat who sought to draw Executive Lodging Alternatives Interim Accommodations for Corporate and Government Markets Apartments, Townhouses & Single Family Homes “FOR THE EXECUTIVE ON THE MOVE” ❈ [email protected] Locations throughout Northern Virginia and D.C. Units fully furnished, equipped and accessorized Many “Walk to Metro” locations Pet Friendly 5105-L Backlick Road, Annandale, Virginia Tel: (703) 354-4070 Fax: (703) 642-3619

MARCH 2004/FOREIGN SERVICE JOURNAL 67 I N M EMORY

the attention of policy-makers to tzel took on another commitment, opinion pieces on international eco- pressing issues involving trade in working to strengthen government nomics for the Washington Post, and steel, textiles and agricultural prod- public service. In 1986, he was a was a fellow of the American Acad- ucts. prime mover at the Brookings emy of Diplomacy and the National Following retirement, Amb. Institution in taking steps to address Academy of Public Administration. Schaetzel continued work to deepen what he called a “quiet crisis” in the He was a member of the Cosmos America’s relationship with the federal public service. A year later he Club and the Council on Foreign European Community: he believed became board chairman of the pri- Relations. there were few things that mattered vately funded National Comm- Survivors include his wife of 59 more for the U.S., and for Europe as ission on the Public Service, and years, Imogen Spencer Schaetzel of well. He wrote a book on U.S.- recruited then-retiring Federal Re- Bethesda, Md.; two daughters, Wendy European relations, The Unhinged serve Board Chairman Paul Volcker Lesko of Kensington, Md., and Ann Alliance: America and the European to become its head. In 1990, the com- Schaetzel of Brooklyn, N.Y.; and four Community (Harper-Collins, 1975). mission published its findings in grandchildren. ■ He was president of the Jean Monnet “Leadership for America: Rebuilding Send your “In Memory” submis- Council in Washington, and a consul- the Public Service,” a report that sion to: FSJ, Att: Susan Maitra, 2101 E tant to the Brookings Institution and stands as a continuing stimulus for Street NW, Washington DC 20037, or the General Accounting Office. positive change. e-mail it to [email protected], or fax it During this period, Amb. Schae- Amb. Schaetzel frequently wrote to (202) 338-8244. No photos, please.

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AN INVITATION FOR SUMMER FICTION nce again the FSJ is seeking Oworks of fiction of up to 3,000 words for its annual summer fiction issue. Story lines or characters involving the Foreign Service are preferred, but not required. The top stories, selected by the Journal’s Editorial Board, will be published in the July/August issue; some of them will also be simultaneously posted on the Journal’s Web site. The writer of each story will receive an honorarium of $250, payable upon publication. All stories must be previously unpublished. Submissions should be unsigned and accompanied by a cover sheet with author’s name, address, telephone number(s) and e-mail address. Deadline is April 1. No fooling. Please also note the following: • Authors are limited to two entries. • Entries will only be accepted by e-mail (preferably in the form of Word attachment and with the text copied into the body of the message). Please send submissions (or questions) to Mikkela Thompson, Journal Business Manager, at [email protected].

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MARCH 2004/FOREIGN SERVICE JOURNAL 75 REFLECTIONS The Peace Table

BY JOHN BUZBEE

y house in Jerusalem over- the Golan Heights — on the Peace looks the Peace Forest, Sometimes Table, and look out past the Peace Mwhich is not particularly Forest to fireworks exploding on the peaceful. Not that there are open hos- I try to imagine horizon. There’s a startling amount of tilities, although the booms in the night Jerusalem as a fireworks in Jerusalem, from both Arab make me wonder at times. But you and Jewish neighborhoods, for wed- don’t get the sense that the Peace normal city, with dings and bar mitzvahs and any other Forest is working to bring together ATM muggings excuse. I cannot imagine how people Israelis and Palestinians. So I have instead of bus in this city get entertainment from begun to rely on a more modest symbol booms in the night. But they do, and of intercommunal harmony. A few bombings. many nights from my porch I can see months ago, shortly after I arrived here, fireworks, soaring and exploding bou- I was walking to work down Hebron quets of red, green and blue. Road and passed a wrought-iron furni- And then sometimes there’s a sharp ture store with attractive table bases, retort, but no colorful bouquet in the minus tabletops. A few weeks later, I sky, just a thudding echo that reminds was shopping for pottery on Nablus an American diplomat do except forge me of deer season in the woods at Road when I noticed some nice tile ahead? home. And twice since my arrival I’ve tabletops. I decided to marry the two. The tile guy was delighted to sell me heard a thunderous boom rumbling It did not immediately occur to me that the tile, but he declined to build the down the wadi (dry riverbed). There the wrought-iron store was Israeli and tabletop. It might not fit, he said; bet- was no light, only silence, and then the the tile store was Palestinian, but when ter that the table people make the top. sirens, one after another screaming it did, the project became in my mind And to my surprise the table guy pleas- toward the latest bombing until their the Peace Table. antly agreed. He told me it would be warbling echoes converged in a bestial At first I was charmed by the idea. ready in five days, so I expected two wail. But almost as quickly I imagined a weeks at best. But five days later, he Jerusalem teeters between anguish string of complications: endless shuttle called. I picked up the Peace Table, and epiphany. Catch it on an upswing, diplomacy between the table store and and it now has a place of honor on my and it is a delightful place — concerts the tile store, arguments over who was balcony. and plays, cafes and restaurants, kids in responsible for what, boycotts and cur- The bigger issue — peace in the park, all backlit by the orange-pink fews and a self-destructive cycle of fur- Jerusalem — is proving more elusive. limestone buildings that glow every niture madness. I envisioned that I’d Sometimes I try to imagine Jerusalem evening at dusk. But then it topples pay too much for a table that would as a normal city, with ATM muggings back into madness. It is a special place. collapse in acrimony. But, what could instead of bus bombings, gang wars To live here is to hope that it will instead of God’s wrath. Give it the kind become a little less different, a little John Buzbee joined the Foreign of low-level urban anarchy that passes less special, a little more peaceful. Service in 1998. He has served in for normal in less biblical places, and it Meanwhile, perhaps I’ll invite the tile Riyadh, Tunis, Jerusalem and Wash- would be an easier place to get used to. guy and the table guy over for a drink. ington, D.C. He is now in Iraq on But it would not be Jerusalem. We can sit around the Peace Table and TDY. The stamp is courtesy of the At night I’ll sit on my balcony, set a watch the fireworks exploding in the AAFSW Bookfair “Stamp Corner.” bottle of wine — occupied grapes from sky. ■

76 FOREIGN SERVICE JOURNAL/MARCH 2004 AFSAAmerican Foreign NEService Association • March 2004WS

Annual Report 2003 2003 PRESIDENT'S REPORT NO SCAPEGOATS, NO MONKEY BUSINESS

n Jan. 22, we ended the year of the goat cy to record numbers of audiences and par- • Second, differentials and allowances Oand began the year of the monkey. The ticipants nationwide. AFSA also launched serve a different purpose from base pay. For past year brought much that was positive for its all-new edition of Inside a U.S. Embassy, example, employees at many of our most AFSA members. There were those, however, which is nearing 20,000 copies sold world- difficult posts receive no COLA, yet current who seemed to see 2003 as the year of the wide. laws have them taking a cut in base pay, with scapegoat, and blamed the Foreign Service accompanying cuts in TSP, retirement and for whatever made them unhappy about MEMBERSHIP survivors’ benefits. American foreign policy. Mr. Robertson Our membership is at an all-time high AFSA has been pushing other legislative would “nuke” us and Mr. Gingrich would of about 12,500. Among our active-duty fixes, including restoring prescriptive relief, “re-educate” us. AFSA would have none of constituencies, FCS takes the prize with a implementing the PIT buy-back, and chang- it. Our responses have made a simple point: membership rate of over 80 percent. ing the low-ranking requirement. These we need no one to give us lessons in courage, USAID membership is about 75 changes are all in the Fiscal Year 2004 devotion to duty and patriotism. percent and State membership and 2005 State Department autho- stands at 70 percent. Retirees, rization bills, which are stuck in the FINANCIALLY SOLID with about 3,700 members, are law-making process. We will keep AFSA is a financially sound organization the second-largest constituency. pushing these, but there are no guar- that spends about $3 million per year. While New Foreign Service employees antees of immediate success. increasing our services to members we have are signing up in record num- AFSA has been active in pro- built operating reserves and an endowment bers. At our most recent recruit- moting the interests of retirees, pro- to support our awards and scholarship pro- ing lunches for new generalists viding counsel and assistance to grams. AFSA’s operating reserve as of the and specialists, over 90 percent retirees with annuity and benefit end of 2003, thanks in part to a recovery in have joined AFSA. problems. AFSA convinced the Retirement Office to apply more the stock market, was valued at $1,043,600. John Limbert This is in addition to the debt-free head- BREAD AND BUTTER transparent and humane proce- quarters building at 21st and E Streets N.W. None of us are in this business for the dures in annuity overpayment cases. AFSA The AFSA Scholarship endowment is val- money, but AFSA did make progress on has also increased its focus on legislative and ued at $4,474,042 and the Sinclaire Awards improving benefits. Our largest step forward regulatory actions that could affect retiree Fund at $375,590. was securing passage of the law allowing benefits, particularly health benefits. Foreign Service employees serving overseas AFSA’S PUBLIC FACE: to benefit from tax exemptions on sale of a THANKS TO ALL A BETTER JOURNAL principal residence. Passage of this law came Kudos to all of our committee and board We can be very proud of the success of after years of work by AFSA and our mili- members — VPs, representatives, and oth- the Foreign Service Journal. There is more tary colleagues. AFSA has also been push- ers — for their hard work. Post represen- advertising income — check out the full- ing a complex of related issues involving tatives and members in the field are providing page color ads in recent issues — and the locality pay and Senior Foreign Service pay vital support through messages that help us articles are superb. I would especially note and performance. These are a tough sell in make our case with management, the the September issue devoted to Foreign today’s political climate in Washington, and media and the rest of the government. Your Service specialists and the lively debate that in meetings we encounter persistent con- impressive support to the legislative action those articles provoked. Some of the best fusion between base pay and allowances and fund, the scholarship fund, etc., is vital in help- writing in the Journal, in my opinion, appears differentials. Much of our work is educa- ing us fight for you. Special thanks also go in the “Letters” section. Please keep writ- tional, explaining two realities: to AFSA’s superb professional staff members ing us. • First, the gap between base pay in who produce the Journal, deal with the media, It was also a very good year for AFSA out- Washington and overseas is growing, and run the office, maintain membership lists, reach: the Speakers Program, media place- that increasing inequality is affecting the keep us solvent, and who provide represen- ments, Elderhostel, and the Essay Contest Service’s ability to staff its most difficult over- tation, advice and grievance counseling. Well explained the importance of U.S. diploma- seas posts. done. ▫ AFSA Annual Report 2003 YEAR IN REVIEW

for the payment of overtime to DS agents in speak at the launch of AFSA’s 2003 edition of January training at the Federal Law Enforcement Inside a U.S. Embassy. AFSA presents Training Center and ask that they be imple- the first-ever mented immediately. Most agents receive April AFSA National overtime back pay by year’s end. Alumni Service AFSA successfully negotiates the implementa- AFSA conducts an extensive survey on the Awards to 12 tion of a long-term language training pilot implementation of the Members of AFSA retirees program at FCS, which begins in July 2003. Household policy and forwards results to the in recognition The first recipient, Under Secretary for Management. AFSA successfully negotiates an important of their out- change with FCS to allow officers the flexibili- Scott Behoteguy, left. The newly renegotiated collective bargaining standing efforts ty to select Temporary Duty or Permanent agreement for the Foreign Agricultural Service to promote American diplomacy. Change of Station status for long-term full- is put into effect. The second installment of the Foreign Service time training. Florida retirees present three weeks of Journal’s series profiling the various foreign AFSA proposes to State management mea- Elderhostel programs on the Foreign Service. affairs agencies spotlights the U.S. & Foreign sures to protect employees from SARS, and Commercial Service. successfully obtains modification to the Retirees in California inaugurate an March authorized departure rules for China to allow Elderhostel program on the Foreign Service in The State Department Resource Management single parents or either member of a tandem Ventura County. Bureau, in response to urging by AFSA, com- couple to take their children to a safe haven in pletes computer upgrades enabling it to offer the U.S. at government expense. Nine FS employees receive the Sinclaire a full range of annuity allotments to retirees. Language Awards for superior achievement The association successfully seeks adjustments while studying a “hard” language. The 2003 AFSA successfully negotiates in favor of the to entry salaries for several Diplomatic awards are given for the study of Albanian, establishment of a regional senior commercial Security agents who entered the Basic Special Estonian, Greek, Korean, Latvian, Lithuanian officer position in El Salvador. Agents Course in August 2002. and Polish. AFSA reaches agreement with State manage- AFSA’s outreach department arranges a panel AFSA writes to the State Department con- ment on the procedures and safeguards for of AFSA board members and staffers to cerning untimely processing of Thrift Savings placing certain security-record information explain Foreign Service careers to some 100 Plan contributions, and State management before the promotion boards for FS-2s and students at Georgetown University. takes action to fix the problem. above. AFSA President John Naland hosts a gradua- AFSA expresses concern that tenure boards Office Director for the Office of Brazil and tion reception for colleagues completing the are taking too long to publish results and issue Southern Cone James J. Carragher speaks to Job Search Program prior to retiring from letters of advice, and the department responds the International Associates as part of AFSA’s foreign affairs agencies. with steps to ensure that the boards’ work corporate membership program. AFSA submits testimony to the House would be completed faster. Labor management staff help AFSA post reps Commerce, Justice, and State Appropriations address safety and health issues at a post Subcommittee urging adequate funding for February where the chancery is undergoing extensive the Diplomatic Readiness Initiative, embassy renovation. security and protection of soft targets. AFSA Communications Director Tom Switzer arranges a video- AFSA submits testimony to the Senate We successfully intervene with management conference for a senior Asia Foreign Relations Committee regarding the to resolve several knotty USAID travel and expert to explain U.S. policy Millennium Challenge Account proposal. transportation issues. on North Korea to The House of Representatives passes H.R. 30,000 households 1307, the “Military Tax Fairness Act,” which May in northern New contains changes to the capital gains tax York via a regional AFSA submits testimony to the Senate exemptions on the sale of a principal resi- cable network. Commerce, Justice and State Appropriations dence without including the Foreign Service. Subcommittee urging adequate funding for To ensure that spe- The Senate then amends the bill to include the DRI, embassy security and protection of cialist career candi- the Foreign Service — an addition for which soft targets. dates undergo the same termination proce- AFSA has pushed hard. dures as generalists in the event the decision is The Senate passes the We succeed in getting AFSA personnel-relat- made to seek to terminate a candidate’s new version and sends it ed provisions into both the House and Senate appointment, AFSA asks the department to back to the House. versions of the State Department authoriza- change the Foreign Affairs Manual. The tion bill (Senate S. 925 and House H.R. 1950). Under Secretary of State department agrees. for Political Affairs Marc AFSA successfully negotiates the implementa- We inform the department of changes in the Grossman and Director tion of the Service Needs Differential concept, Office of Personnel Management’s regulations General Ruth A. Davis persuading FCS to endorse current State Department guidelines.

2 AFSA NEWS • MARCH 2004 AFSA Annual Report 2003 YEAR IN REVIEW

AFSA reviews new discipline regulations for AFSA negotiates changes to the USAID evalu- the foreign affairs agencies’ and proposes ation skills matrix, Annual Evaluation Form changes. Final agreement is reached in and updated guidance. September. Bonnie Brown joins the AFSA staff as Retiree Affairs Coordinator. AFSA holds its annual awards ceremony. Secretary Powell presents the Award for Essay Contest, which drew 550 entries. Lifetime Contributions to American After over four years of negotiation and con- Diplomacy to former Secretary of State sultation, AFSA and FCS agree to a new man- George P. Shultz. Awards for constructive agement planning and performance appraisal dissent are presented as well as three awards system policy and promotion precepts that for extraordinary contributions to effective- On Foreign Affairs Day, Secretary of State will dramatically change the evaluation proce- ness, professionalism and morale. Colin Powell, USAID Administrator Andrew dures in FCS. Natsios and AFSA President John Naland After several negotiating sessions, State man- unveil six additional names of Foreign Service agement agrees on a pilot program for a new employees added to the AFSA Memorial EER form for FS-1s and above. Plaque. Retiree Coordinator Bonnie Brown informs Retiree Liaison Ward Thompson attends a the State Department of errors it had made in meeting of the Foreign Affairs Retirees of New calculating lump-sum payments for annual England and presents National Alumni leave upon retirement. The department then Service Awards to its founders on the organi- recalculates payments for annuitants who had zation’s 20th anniversary. been underpaid. Continuing its series profiling the various for- AFSA urges the House Ways and Means eign affairs agencies, the Journal marks the Committee to favorably consider a Premium 50th anniversary of the U.S. Foreign July Conversion Bill (H.R. 1231) that would per- Agricultural Service. AFSA’s FCS VP serves as moderator for a mit retirees to pay health insurance premiums Seattle-area retirees launch the first Foreign commercial diplomacy course organized by with pretax earnings. Service Elderhostel program in Washington the Business Council for International AFSA’s newly-expanded Web Marketplace state. Understanding at FSI for new DCMs and attracts more than 4,000 hits monthly. The principal officers. AFSA President John Naland meets with most requested pages include: schools, books, Foreign Service retirees and major media in AFSA urges its membership to write members extended-stay housing, real estate, and prop- Houston and San Antonio, Texas. of Congress to support legislation that would erty management. protect the prescription drug benefits of AFSA meets with the National Treasury June retired employees in the Federal Employees Employees Union to discuss shared interests Health Benefits Plan. regarding locality pay for those posted abroad. AFSA discusses proposed measures to protect Again, AFSA seeks a change in the per diem soft targets overseas during a meeting at the State Department officials brief AFSA on regulations for FS personnel in long-term Overseas Building Office. State’s capital security cost-sharing proposals. training at FSI. AFSA considers the implications for USAID Negotiations are successfully concluded on AFSA State VP Louise Crane addresses the and Commerce. proposals sent in May by AFSA to State man- DCM and Principal Officer Course at FSI. agement urging amendments to the State AFSA rebuts attacks on American diplomacy Department’s procedural promotion precepts The outgoing AFSA Governing Board — made by Newt Gingrich via placement of arti- for the 2003 promotion boards. whose president, John Naland, faithfully cles and interviews by senior diplomats in served AFSA for four years as State VP and major media, including Foreign Policy maga- The Journal celebrates AFSA’s 30 years as a then president — is given a fond farewell. zine, The Washington Times, NBC News, Fox union with articles by Tom Boyatt, Tex The new Governing Board, led by Amb. John News and NPR. Harris, Hank Cohen, Ted Wilkinson and Ken Limbert, takes office. Bleakley. AFSA successfully recruits for membership 80 September AFSA USAID persuades the Foreign Service percent of new entrants joining the USAID Grievance Board to order the reinstatement of AFSA files comments in an Equal Employment Foreign Service. an untenured USAID employee who had Opportunity proceeding, opposing a proposed been selected out. The decision plows new rule that would exempt employers from provi- ground. USAID seeks reconsideration. The August sions of the Age Discrimination in Employ- board reconfirms, but USAID refuses to comment Act of 1967, thereby permitting them to Secretary Powell presents awards to the win- ply. A struggle between board authority and reduce or eliminate health insurance for ners of the 2003 AFSA National High School the agency’s is now under way. Medicare-eligible retirees.

MARCH 2004 • AFSA NEWS 3 AFSA Annual Report 2003 YEAR IN REVIEW

D.C.-area retirees present the Elderhostel The association concludes an agreement with affairs agencies. AFSA hopes the matrix will week in Northern Virginia, the 50th there the State Department on the requirement for serve as a catalyst for movement on the issues since the AFSA-sponsored program began in hardship service in order to qualify for pro- listed. 1996. motion to the Senior Foreign Service, with waivers in certain medical circumstances. AFSA arranges for a distinguished group of December retirees to explain U.S. diplomacy to audi- AFSA agrees to the department’s proposed As part of AFSA’s mid-term bargaining agen- ences at Johns Hopkins University’s presti- incentive packages for service in Iraq and da with FCS, we succeed in persuading FCS gious “Evergreen” professional education pro- Afghanistan. to endorse the new FAM guidelines on the gram. Member of Household Policy. AFSA intercedes on behalf of several State November AFSA proposes changes to the time-in-ser- employees whose EERs had not been written On Nov. 11, vice/time-in-class rules for State generalists or submitted in a timely manner. President Bush signs who convert from specialist at the mid-level. Discussions are held between AFSA and man- H.R. 3365, the We also propose changes to HR records to agement officials in the Diplomatic Courier “Military Family Tax take into account the special circumstances Service addressing ongoing issues affecting Relief Act,” providing affecting employees who are called up for mil- traveling couriers. special tax considera- itary service. tions for the Foreign Over 100 university and college career centers We successfully contest Human Resource Service and the military in exempting the capi- purchase Inside a U.S. Embassy following decisions to deny two temporary quarters tal gains tax on the sale of a principal residence. AFSA mailing. allowance extension requests. AFSA President John Limbert speaks at the AFSA meets with Senate Government Affairs annual meeting and banquet of the Foreign October Subcommittee on Federal Service staff to dis- Service Retirees Association of Florida in cuss the impact on the Senior Foreign Service The Journal wins an Award for Jacksonville. of the DOD authorization bill. The measure Publication Excellence certificate Retiree Liaison Bonnie Brown meets with would freeze an existing discrepancy in SFS in the category of printed four- State’s legal, retirement and financial staff remuneration because of the lack of locality color magazines and AFSA News concerning measures to prevent future over- pay for those serving abroad. wins an award in the annual payments to annuitants and measures to report category. AFSA meets with the Senior Executive ameliorate the effects of overpayments. She Association’s general counsel to discuss the The annual AFSA Elderhostel week at the receives assurances that the monitoring of cal- impact on SES and SFS of the DOD autho- Chautauqua Institution in New York draws a culations and communications with retirees rization provisions eliminating locality pay record 200 will improve. and the freezing of salary levels as of Jan. 11, partici- AFSA Governing Board members and staff 2004, and to seek an (ultimately successful) pants. receive a briefing from Diplomatic Security joint approach to our common problem. AFSA on Iraq service. AFSA expresses the concerns The Journal sets an all-time record meets on of members and seeks better preparation for (for one month and for one year) Capitol Hill those assigned to Iraq. for advertising, both in pages sold with House Rep. Frank Wolf, R-Va., Chairman of the and total advertising revenue. In International Relations Committee staff to House Commerce, Justice, State spite of a relatively difficult year discuss the State Department 2004 authoriza- Appropriations Subcommittee, meets with for the advertising industry, the tion bill. AFSA to discuss our concerns regarding the FSJ increased gross sales by AFSA meets with the Senate Government omnibus appropriations package and other more than 10 percent in 2003. Affairs Committee regarding status of new issues. AFSA hosts the last of 28 recruitment lun- language in the Defense Department autho- AFSA collaborates with USAID management cheons in 2003 for new generalists and spe- rization bill conference. AFSA also meets with on the USAID Workforce Planning Working cialists: a full 85 percent of all new hires join Senate Foreign Relations Committee staff to Group and other working groups, and success- AFSA. discuss progress on the State Department fully persuades management to offer an authorization bill and offer assistance. AFSA hosts three retirement champagne Immediate Benefit Plan to USAID employees toasts for retiring members and welcomes 256 A joint press conference is held with the in 2004. new and rejoining retired members. Uniformed Coalition urging the House and USAID AFSA continues an ongoing exchange Senate to enact the Military Tax Fairness Act Membership reaches 12,474 by year’s end. with USAA over its denial of eligibility to FS provisions. personnel serving in USAID, FAS, FCS and AFSA assists hundreds of employees from AFSA meets with Donald Reid, Senior IBB. State, USAID, FCS, FAS and IBB during 2003 Coordinator for Diplomatic Security, con- with administrative issues, grievances, disci- USAID AFSA creates and presents to man- cerning the handling of security clearances pline cases, security investigations and security agement a matrix that lays out the benefits and related issues. clearance matters. ▫ disparity between USAID and other foreign

4 AFSA NEWS • MARCH 2004 AFSA Annual Report 2003 Staff Finance and Administration Outreach Programs - Accounting Public Outreach - Financial - Speakers Bureau Management - Elderhostel - Staff Recruitment & - Memorial Plaque Supervision - Foreign Service Day - Building - Diplomats Online Administration - AFSA Awards - Board and - Inside a U.S. Embassy Committee Support Book Congressional Affairs Jay Mallin Jay Jay Mallin Jay - Lobbying From left: Controller Kalpna Srimal, Executive Director Susan Reardon, From left: Congressional Affairs Director - Tracking Legislation and Accounting Assistant Steven Tipton. Ken Nakamura, Executive Assistant Austin - Hill Testimony Tracy, Retiree Liaison Bonnie Brown, and - Grassroots Campaigns Director of Communications Tom Switzer. Not pictured: Professional Issues Retiree Services Foreign Service Journal Coordinator Barbara Berger and - Member Inquiries - Editing Elderhostel Coordinator Ward Thompson. - Retiree Newsletter - Writing - Retiree Directory - Design - Advertising - Subscriptions and Sales Member Services - Member Recruitment - Post Reps - Insurance Programs Jay Mallin Jay - Address Changes Advertising & Circulation Manager Ed Miltenberger, Senior Editor Susan - AFSANET Maitra, Associate Editor Shawn Dorman, Editor Steve Honley, and Business - AFSA Web Site Manager Mikkela Thompson. Not pictured: Art Director Caryn Suko Smith.

Labor Management - Negotiations - Protecting Mallin Jay Benefits Membership Director Janet Hedrick and Administrative Assistant - Grievance Ana Lopez. Not pictured: Membership Representative Lindsay Peyton. Counseling - OIG & DS Scholarships Investigations - Member Inquiries - Financial Aid - Informing the - Merit Awards Field - Art Merit Awards Jay Mallin Jay - Committee on Education Front row, from left: General Counsel Sharon Papp, Grievance Attorney Harry Wilkinson, Labor Management Office Manager Christine Warren. Back row, from left: Grievance Attorney Charles Henderson, Labor Management Attorney Zlatana Badrich, Labor Management Specialist James Yorke, and USAID AFSA Office Manager Asgeir Sigfusson. Mark Burns Mark Not pictured: Senior Labor Management Advisor Doug Broome. Scholarship Administrator Lori Dec.

MARCH 2004 • AFSA NEWS 5 AFSA Annual Report 2003 Governing Board Front row, from left: Louise Crane (State VP), Bill Carter (USAID VP), John W. Limbert (President), Cynthia Efird (State Representative), Stan Zuckerman (Retiree Representative), David E. Reuther (Retiree Representative), Alex Belida (IBB Representative), Ray Maxwell (State Representative). Back row, from left: Gil Sheinbaum (Retiree Representative), Danny Hall (Treasurer), Tex Harris (Secretary), Charles Ford (FCS VP), Bill Crawford (FCS Representative), Ted Wilkinson (Retiree Representative), Thomas Olson (USAID Representative), Scot Folensbee (State Representative), Jim Wagner (State Represenative) Not Shown: George Jones (Retiree VP), Pamela Bates (State Representative), John Sullivan (State

Representative). Mallin Jay

The total number of visitors to the AFSA site increased dramatically in 2003. The popularity of AFSA’s national essay contest and book, Inside a The U.S. Embassy, drew approximately 40,000 non- Foreign Service visitors. AFSA's Web site offers an excellent opportunity to introduce the public to the Foreign Service Journal valuable role members of the Foreign Service play in serving their country. Editorial Board Additionally, AFSA Web site statistics indicate that visitors to our site are downloading greater quantities of information, viewing more pages and returning to our site more frequently. The AFSA Web site is providing Foreign Service members with content-rich information as well as serving as a resource for many non-Foreign Service visitors. AFSA encourages all members to visit the AFSA Web site at www.afsa.org and to sign up for the AFSANET listserve designed to provide updates on www.afsa.org items of interest to the foreign affairs community. Jay Mallin Jay From left: William Jordan, Carol A. Giacomo, Judith Baroody (Chair), Laurie Kassman, Tatiana Gfoeller and Ted Wilkinson (Governing Board Liaison). Not pictured: Mark W. Bocchetti, Stephen Buck, Hollis Summers and Bill Wanlund.

6 AFSA NEWS • MARCH 2004 AFSA Annual Report 2003

Membership by Constituency Membership by Function

USAID 6% FAS 1% Associates 2% IBB 0.2%

Retiree 30% Retirees 30% Active-Duty Generalists 46% State 59% Active-Duty FCS 2% Specialists 22% Associate 2%

Total Membership 1990 to 2003

13,000 Record High 12,474 Members 12,000 AUDIT REPORT for AFSA

11,500 AFSA’s audited financial statements for 2003 will be 11,000 available on the AFSA Web

10,500 site (www.afsa.org) on May 14.

10,000

9,500

9,000

8,500 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 Budget in Brief

INCOME ...... $ EXPENSES ...... $ Dues ...... 1,780,000 Membership Programs ...... 1,000,911 Foreign Service Journal Advertising ...... 439,000 Foreign Service Journal ...... 697,651 Insurance Programs ...... 25,000 Legislative Affairs ...... 173,297 Legislative Action Fund ...... 40,000 Professional Programs and Outreach ...... 341,807 Publications and Other ...... 41,500 Scholarships ...... 338,505 Professional Programs and Outreach ...... 252,810 Administration ...... 354,645 Scholarships ...... 340,954 Contributions to Endowment and Reserves ....12,448 TOTAL ...... 2,919,264 TOTAL ...... 2,919,264

MARCH 2004 • AFSA NEWS 7 AFSA Annual Report 2003 AFSA in 2003: By the Numbers 18 Number of one-week Elderhostel programs on the Foreign Service AFSA Core Values 49 AFSA articles and letters placed in newspapers around the nation The American Foreign 90 Number of students who received AFSA scholarships Service Association 137 AFSANETs sent in 2003 Established in 1924 177 Members serving as post and bureau representatives 256 New retiree members 550 Students participating in AFSA’s High School Essay Contest MISSION 978 Foreign Service new hires who joined AFSA To make the Foreign Service a more effec- 7,687 Subscribers to the AFSANET Listserve tive agent of United States international 12,474 AFSA members at year’s end leadership. 19,000 Number of copies of Inside a U.S. Embassy sold 20,250 Attendees at AFSA speaker programs nationwide VISION 32,000 Dollar amount AFSA-PAC contributed to members of Congress We work to make the Foreign Service a 472,013 Dollar amount of advertising in the Foreign Service Journal better-supported, more respected, more 2,919,264 Dollar amount of AFSA’s budgeted income satisfying place in which to spend a career and raise a family. Benefits of AFSA Membership LABOR MANAGEMENT RELATIONS: AFSA negotiates the regulations affecting employees’ careers. We work to make the Foreign Service a better place in which to work, live and raise a family. Our network of AFSA post representatives provides on-site assistance to overseas members. CONGRESSIONAL ADVOCACY: AFSA is your advocate before Congress on issues affecting the careers of active members and the annuities of retired members. OMBUDSMAN: We work to resolve member problems with pay, allowances, claims, annuities, health care, and many other issues. VOICE OF THE FOREIGN SERVICE: As the professional association of the Foreign Service since 1924, AFSA works to strengthen our profession and is ever vigilant for threats to the career Foreign Service. GRIEVANCE REPRESENTATION: AFSA’s legal staff provides hands-on assistance with grievance proceedings when your rights are violated. OUTREACH: AFSA communicates the views of the Foreign Service on professional issues to the news media and directly to the general public. FOREIGN SERVICE JOURNAL: Our monthly magazine offers provocative articles that will keep you current on developments in the foreign affairs profession. AFSA NEWS: AFSA’s monthly newsletter, published inside the Foreign Service Journal, highlights issues affecting your daily life. — RESPONSIVENESS: We listen to our AFSA WEB SITE: Online member area including member directory and member forums. members and actively promote their AFSANET: Regular e-mail updates keep you current on issues of importance to the Foreign Service community. interests. LEGAL SERVICES: We offer free legal advice and representation on employment issues, includ- — EFFECTIVENESS: We act with a sense of ing security and OIG investigations, discipline cases and security clearance proceedings. urgency, get results, and make a difference. INSURANCE PROGRAMS: You can choose among competitively priced insurance programs — INTEGRITY: We demonstrate openness, designed for the Foreign Service community, including professional liability insurance, accident, den- honesty and fairness in everything we do. tal and personal property/transit. RETIREE SKILLS DATABASE: Our online database lists AFSA members who are available for — EFFICIENCY: We carefully expend our jobs, college teaching, and speaking engagements in a wide variety of areas. resources where they can have maximum AFSA SCHOLARSHIPS: Approximately 100 merit and financial need scholarships are granted impact. every year to Foreign Service family members. Since 1926, AFSA has awarded approximately $4,450,000 — COMMUNITY: We foster teamwork, in scholarships. AFSA AWARDS: This unique awards program honors constructive dissent and outstanding per- respect each other, and enjoy our time formance. together. RETIREE NEWSLETTER: This bimonthly newsletter is exclusively for retired members. — COURAGE: We encourage responsible DIRECTORY OF RETIRED MEMBERS: This invaluable annual listing, by state, of contact infor- risk-taking in order to achieve results. mation for retired members is provided to all retired AFSA members. MAGAZINE DISCOUNTS: AFSA members are eligible for special discounts on subscriptions to — PATRIOTISM: We are faithful to the grand major foreign affairs journals. and enduring ideals that gave our nation ESPRIT DE CORPS: We work to build a sense of common cause and professional pride among birth. all Foreign Service members — active and retired; officer and specialist; entry-level and veteran. — EMPOWERMENT: We trust each other to AFSA MEMORIAL PLAQUES: Established in 1933, and maintained by AFSA, these plaques in the Truman Building lobby honor members of the Foreign Service who lost their lives overseas in give our best efforts guided by these core the line of duty. ▫ values. ▫

8 AFSA NEWS • MARCH 2004 AFSANEWSBRIEFS SFS Salaries Adjusted to Include Locality Pay

ast month, we reported grave concern that the new pay is structured, considerable legal expertise, extensive con- Senior Executive Service salary reform coming into force tact with employees within OMB and OPM and lots of leg- Lon Jan. 11 threatened to freeze the salaries of all Senior work. It also required an intensive effort on the part of the Foreign Service employees at current levels, leaving SFS State Department leadership to persuade OMB and OPM to employees in Washington with a base pay including support the change. Washington locality pay and those serving overseas without Most of the key people involved in this effort were Civil locality pay. The result would have severely penalized SFS Service employees exhibiting the best qualities of the “one colleagues serving overseas, sending exactly the wrong mes- team” vision — working for the department, not for narrow sage about overseas service to the Foreign Service. self-interest. AFSA would like to thank the department We are happy to report that an executive order — the work employees in Human Resources and the Office of the Legal of the State Department (with support from AFSA), in coop- Advisor who did the legal research, called on their network eration with the Office of Personnel Management and the of contacts in OPM and OMB, and made the case for us. Office of Management and Budget — was signed by They are: Assistant Legal Adviser John Kim and Karen President Bush on Jan. 23. It authorized the adjustment of Johnson in the Legal Adviser’s Office of Employment Law, the base salaries of all SFS member, serving domestically as Bill Mullican and Sally Mavlian in HR’s Resource well as overseas, to include Washington locality pay. Management and Organizational Analysis Office, Laura Hall The adjustment to SFS salaries to include locality pay is in HR's Policy Coordination Office and especially Deputy good news for SFS employees. But in creating what is Assistant Secretary of Human Resources, Linda Tagliatatela. essentially a two-class salary system overseas, the SFS salary We also wish to thank Under Secretary for Management reform highlights the need to make adjustments for all FS Grant Green, Director General W. Robert Pearson and employees overseas. SFS employees overseas now get locali- Principal Deputy Assistant Secretary of Human Resources ty pay, but the rest of the FS employees do not. Locality pay Ruth Whiteside for their consistent leadership on this issue. for all overseas FS employees continues to be Issue Number Finally, the actual paperwork and processing of the pay One for AFSA. changes required incredible efforts by the staff of the HR Securing an equitable implementation of the SES salary Bureau's Executive Office and the Charleston Regional reform for the SFS was the result of a tremendous effort by Financial Center. Thanks to the staff of those offices many people, requiring extensive knowledge of how federal as well.

Briefs • Continued on page 11

AFSA HEADQUARTERS: Staff: Governing Board: (202) 338-4045; Fax: (202) 338-6820 Executive Director Susan Reardon: [email protected] STATE DEPARTMENT AFSA OFFICE: Business Department PRESIDENT: John W. Limbert (202) 647-8160; Fax: (202) 647-0265 Controller Kalpna Srimal: [email protected] STATE VICE PRESIDENT: Louise K. Crane USAID AFSA OFFICE: Accounting Assistant Steven Tipton: [email protected] (202) 712-1941; Fax: (202) 216-3710 USAID VICE PRESIDENT: Bill Carter Labor Management FCS VICE PRESIDENT: Charles A. Ford FCS AFSA OFFICE: General Counsel Sharon Papp: [email protected] (202) 482-9088; Fax: (202) 482-9087 Labor Management Attorney Zlatana Badrich: [email protected] FAS VICE PRESIDENT: Laura Scandurra Labor Management Specialist James Yorke: [email protected] RETIREE VICE PRESIDENT: George F. Jones AFSA Internet and E-mail addresses: USAID Senior Labor Management Advisor Douglas Broome: [email protected] SECRETARY: F.A. “Tex” Harris AFSA WEB SITE: www.afsa.org USAID Office Manager Asgeir Sigfusson: [email protected] TREASURER: Danny Hall AFSA E-MAIL: [email protected] Grievance Attorneys Harry Sizer: [email protected], and Charles Henderson: [email protected] AFSA NEWS: [email protected] STATE REPRESENTATIVES: Pamela Bates, Office Manager Christine Warren: [email protected] FSJ: [email protected] Cynthia G. Efird, Scot L. Folensbee, PRESIDENT: [email protected] Member Services Raymond D. Maxwell, John C. Sullivan, STATE VP: [email protected] Director Janet Hedrick: [email protected] Jim Wagner RETIREE VP: [email protected] Representative Lindsay Peyton: [email protected] USAID REPRESENTATIVE: Thomas Olson USAID VP:[email protected] Administrative Assistant Ana Lopez: [email protected] FCS REPRESENTATIVE: William Crawford FCS VP: [email protected] Outreach Programs Retiree Liaison Bonnie Brown: [email protected] RETIREE REPRESENTATIVES: Gilbert Sheinbaum, AFSA News Director of Communications Thomas Switzer: [email protected] David E. Reuther, Theodore S. Wilkinson, III, Editor Shawn Dorman: [email protected] Congressional Affairs Director Ken Nakamura: [email protected] Stanley A. Zuckerman Corporate Relations/Executive Assistant Austin Tracy: [email protected] How to Contact Us: Contact to How (202) 338-4045 x 503; Fax: (202) 338-8244 Scholarship Director Lori Dec: [email protected] IBB REPRESENTATIVE: Alex Belida On the Web: www.afsa.org/news Professional Issues Coordinator Barbara Berger: [email protected] FAS REPRESENTATIVE: Michael Conlon

MARCH 2004 • AFSA NEWS 9 GAINING PUBLIC SUPPORT FOR DIPLOMATIC READINESS FUNDING AFSA Augments Outreach Efforts in 2003 BY TOM SWITZER, DIRECTOR OF COMMUNICATIONS

FSA greatly augmented its national ed youth — especially minority-group ed six network TV cameras and some 30 outreach efforts in 2003 aimed at members — to encourage them to consid- journalists from major media. The result was Abroadening and deepening public er Foreign Service careers. in-depth treatment of this event via some 43 support for funding for diplomatic readiness. AFSA also effectively deployed video con- media outlets nationwide, including NBC, One of our most effective outreach elements ferencing to several regions of the country CNN, ABC, CBS, Associated Press, and is our Speakers Program, which deployed that lack retiree speakers. A high point of NPR. 405 Foreign Service speakers in 2003 (com- the initiative was Asia expert Robert Warne AFSA also orchestrated an intense media pared to 110 speakers in 2000) to explain the explaining U.S. policy on North Korea to a campaign to counter the tendentious importance of U.S. diplomacy for American town meeting in upstate New York that charges against U.S. diplomacy leveled last national interests to an audience of more than reached some 30,000 households via a year by Newt Gingrich, Pat Robertson and 20,000 in 41 states and Washington, D.C. other critics. We arranged for highly effec- The venues ranged from world affairs tive rebuttals by Ambassadors Thomas councils and universities to local commu- Boyatt, Richard Holbrooke, Bruce Laingen nity-service organizations, “town meet- and others to be placed in leading national ings,” churches and high schools. Former media including NPR, NBC, Fox News, and Assistant Secretary for Middle East Affairs Foreign Policy magazine. Richard Murphy enthralled attendees at a AFSA outreach efforts have placed regional Great Decisions seminar in New heavy emphasis on counterterrorism efforts Jersey with his keen analysis of regional issues. in the aftermath of 9/11. We have deployed Other outstanding speakers were Amb. more than 250 AFSA retiree experts on Grant Smith, Stephen Buck and Stephen Middle East and South Asia issues for speak- Dachi, who elicited glowing reviews from er and media programs nationwide, all of attendees at John Hopkin’s prestigious “AFSA speakers explained the whom were able to emphasize the vital role “Evergreen” adult education series for their played by U.S. diplomacy in the ongoing presentations on U.S. policies in South Asia importance of U.S. diplomacy to struggle against terrorism. The director of and the Middle East. They also impressively an audience of more than 20,000 the State Department's Office of Public described the attractions and challenges of Liaison thanked AFSA for these efforts, since careers in the Foreign Service, including in 41 states and Washington, D.C.” many U.S. government officials were con- insightful consideration of family issues. strained by policy sensitivities from speak- AFSA speakers addressed other topics regional cable network. Video conferencing ing publicly. We also held frequent discus- including: counterterrorism, democratiza- is an inexpensive, convenient outreach sions concerning AFSA issues with the more tion in the former Soviet Union and tool, which we plan to increasingly utilize to than 35 diplomatic correspondents attached Eastern Europe; U.S. initiatives in Latin reach wider audiences nationwide. to the State Department’s press office, as well America, Africa, and Asia; United Nations AFSA’s media outreach efforts were also as with senior editors and bureau chiefs of peacekeeping; international environmen- intensive in 2003. We placed — either direct- national media based in Washington. tal concerns; population and migration ly or through AFSA retirees — 49 op-eds, These outreach programs have promoted issues; and human rights. letters-to-the-editor, articles and press releas- three important AFSA goals: broadening the We provided speakers with talking es advocating increased public and con- Foreign Service constituency, enhancing pub- points and issue updates, as well as promo- gressional support for U.S. diplomacy in lead- lic awareness of global affairs and the key role tion material for AFSA’s excellent new book, ing media entities including the Washington of the Foreign Service and diplomacy, and Inside a U.S. Embassy. Speakers stressed the Post, TheNew York Times, Wall Street Journal, activating the AFSA retiree constituency by critical role of diplomacy in advancing Los Angeles Times, Houston Chronicle, involving it in significant programs that draw America’s vital security and economic Government Executive, Federal Times, on their backgrounds and skills in telling our interests around the globe. They also encour- Associated Press, NPR, and CNN. story to audiences nationwide. aged audience members to contact their con- Among our better efforts was the heav- If you want to be involved with AFSA gressional representatives to request increased iest media coverage ever arranged for outreach, contact me at [email protected] or funding for U.S. diplomatic readiness. AFSA’s annual awards ceremony held in call toll-free (800) 704-2372, ext. 501. ▫ Moreover, speakers reached out to talent- June at the State Department, which includ-

10 AFSA NEWS • MARCH 2004 AFSANEWSBRIEFS V.P. VOICE: STATE ■ BY LOUISE CRANE Continued from page 9 Our Abusive Ambassadors Foreign Affairs Day

Set for May 7 ecently three political ambassadors “fired” their career Foreign Affairs Day, the annual home- Foreign Service Office Management Specialists. In two coming for retired State Department employees, will be held this year on Rcases, the OMSs were locked out of their embassies, Friday, May 7. As is customary during denied access to department e-mail, refused admittance to their this event, there will be a brief ceremony offices, and otherwise humiliated. In the third case, the OMS at the site of the AFSA Memorial Plaques begged to serve in another OMS slot within the embassy in to honor those members of the Foreign an effort to save her family from having to move and change Service community who have lost their schools once again. She even volunteered to go on leave with- lives overseas in the line of duty or under out pay to stay in the country so that her husband could keep heroic or inspirational circumstances. his assignment to post. Her request was curtly rejected on the ground that the ambas- The event offers a great opportunity to sador didn’t want her or any member of her family around. Her husband’s assign- see old friends and catch up on doings at ment was cancelled along with hers. Foggy Bottom. Mark your calendars now Despite such abuse of authority, I have nothing against political ambassadors. I so you can join AFSA for this important have worked for many and found they all made distinguished contributions to American event. diplomacy. In fact, they can be good leavening for the career Service. They taught me greater respect for lawmaking and the role of the Congress. Among those who AFSA Foreign Affairs Day headed embassies where I was stationed were A personnel system that Reception Edward Korry (Chile), Otto Reich (Venezuela), AFSA plans to hold its annual Michael J. Mansfield (Japan), Walter F. Mondale does not help those reception during this year’s Foreign (Japan) and Thomas S. Foley (Japan), gentlemen all. subjected to capricious Affairs Day. More details will follow Not one of them ever spoke in a disrespectful tone in the April AFSA News. AFSA toward any member of his staff. I remember meet- firings is not a system invites all participants to enjoy ing Amb. Reich’s elderly mother and congratulating her on her son’s good manners. He spoke as gra- that engenders another opportunity to relax and ciously to the chambermaid as he did to the First Lady. mingle with former colleagues at the devotion and loyalty. But I must speak out about those political ambas- conclusion of the day’s events. sadors who do not treat employees with respect, the ones who are apparently not concerned about the disruption involuntary curtailment causes to the lives of employees and their families, not to mention the department and the personnel system, much less the financial cost to the department and ultimately the taxpayers. AFSA protested each of these involuntary curtailments. We have urged the department to tighten the training it provides political appointees, to remind them of the ethics rules, advise them to treat their career staff with respect, warn them of the cost to the department and the government when staff are curtailed for reasons no weightier than whimsy.

JOSH AFSA represented the OMS employees in these three cases, helping to ensure good onward assignments. It wasn’t always possible to prevent a damaging EER from being AFSA’s Day on the Hill filed, and in one case, it proved impossible to get any EER at all. But to its great cred- On May 6, 2004, AFSA will again lead a it, the department did move quickly to prevent long-term damage to the careers of group of retired Foreign Service personnel these OMS employees. to visit their senators and representatives What is the point of these horror stories? They are meant as a cautionary tale for on Capitol Hill. Please join AFSA to sup- those of you who are in a leadership position at an embassy or hope to be in one. Treat port the Foreign Service, our foreign all employees with respect. If your ambassador doesn’t, seek a solution that will be affairs agencies and American diplomacy. better than an involuntarily curtailment. A personnel system that does not help those Look for more information in next mon- subjected to capricious firings is not a system that engenders devotion and loyalty. The th’s AFSA News and in your Foreign Foreign Service needs loyal and devoted members who subscribe to the creed of world- Affairs Day mailing. wide service: We will go where we are needed and once there, we will do our best to Briefs • Continued on page 12 serve this great nation. ▫

MARCH 2004 • AFSA NEWS 11 V.P. VOICE: USAID ■ BY BILL CARTER AFSANEWSBRIEFS A “Split” Decision on Accomplishments Continued from page 11 9/11 Commission and Consular Questions erious runners know what their “splits” are supposed In late January, the 9/11 Commission to be for each lap around the track. As AFSA VP, I held public hearings in Washington on Shave just completed my first quarter mile, which makes border and transportation security. Some it an appropriate time for some honest stock-taking and exam- sessions focused on visa issuance and ination of the split time — or in USAID lingo: a self-assess- included testimony from former Assistant ment. USAID AFSA began last July to define its “invest in Secretary for Consular Affairs Mary Ryan the employee” agenda, and attempted to broadcast it widely to management and members. Thus far, progress on spe- and the current Assistant Secretary, cific elements of the agenda has been disappointing and limited. We have experi- Maura Harty. Amb. Ryan reviewed the enced the most success in helping individual members resolve an array of problems pre-9/11 situation, noting that fewer con- mostly unique to them. However, on the broader issues that affect larger segments sular employees were asked to do more. of the membership, our accomplishments have yet to materialize. Let’s review some One commissioner agreed that this was of the areas where we've been frustrated and will seek to improve our split over the the equivalent of “doing more with noth- next quarter and beyond: ing.” Amb. Harty specified the numerous GRIEVANCES: AFSA had hoped that mediation and dispute resolution could be changes implemented to visa processing used as effective techniques in labor relations and as a means of avoiding wasteful, systems after 9/11. She characterized the time- and money-consuming cases. And why not, since USAID encourages the use of these very same techniques by recipient countries? However, USAID seems to be department’s visa work overseas as the reluctant to self-medicate. Management has shown no willingness to resolve cases “forward-based defense of the United before they fester and erode morale. One case is particularly unfortunate, because it States.” involves a blatant injustice. Even though the Foreign Service Grievance Board has ruled twice in favor of the employee, management remains recalcitrant. Seeking Closet BENEFITS: AFSA has developed and circulated a matrix highlighting the dispari- Comedians ty in benefits between USAID and other foreign affairs agencies. Management gives Given the overwhelming heaviness lip service to implementing many of the benefits, but even the simplest and least expen- of the current international situation, sive have not been acted upon. There always seem to be sufficient funds to cover up we are seeking to lighten the mood plaques, hold expensive conferences and implement reblocking, but not for student with some Foreign Service humor loan repayment programs, spousal language training and other programs that employ- (it’s not an oxymoron!) on these ees of other agencies enjoy. pages with a new occasional feature, TRANSPARENCY IN SENIOR MANAGEMENT GROUP ASSIGNMENTS: There have been “From the Lighter Side.” Brian instances where current Service members have been passed over for senior positions Aggeler — whose monthly cartoon in favor of candidates outside the Service. Expressions of interest from qualified offi- is a popular feature in both State cers were ignored in a mystery-shrouded decision-making process. The cynicism and magazine and AFSA News — is sure- decay in morale caused by this seem to be cavalierly ignored. These decisions also ly not the only one out there with a have an impact on the promotions and career development of officers in the lower knack for seeing humor in the ranks, because they can thwart opportunities. unique way of work and life in the TENURE: This year final tenure decisions dragged out far longer than was neces- Foreign Service. sary, causing many candidates anxiety for several months, while their careers and futures We encourage any Foreign Service remained in limbo. Repeated AFSA requests for speedier issuance of tenure deci- member with a reasonable ability to sions to avoid the personal turmoil went unheeded. draw or write to share a cartoon, joke USAA: USAA informed AFSA in a letter that USAID (and FAS and FCS) FSOs or other humorous commentary were no longer eligible to join USAA because its mission statement did not explicit- with us. All submissions will be seri- ly state that it was involved in national security. This seemed like an easy matter to ously considered. Send your non- fix: We sent USAA the new joint State-USAID Strategic Plan, in which our mutual returnable humor to us by mail: efforts on national security are explicitly stated in a comprehensive document. Yet AFSA News, AFSA, 2101 E St. NW, we remain without a resolution. Washington, DC 20037; by fax: The first lap is over and admittedly progress is not what had been hoped, but the (202) 338-8244; or by e-mail: race is not over yet. We expect better splits for the next three laps. ▫ [email protected]. ▫

12 AFSA NEWS • MARCH 2004 FROM THE FIELD Manila and had an opportunity to speak tional issues, such as health insurance and individually with many of the entry-level employment. Some of these require AFSA State VP employees who attended the conference. changes in legislation, but on those that do Attends Manila She also stopped by the embassy in Tokyo not, AFSA will try to make the argument to meet with the AFSA representative and for additional benefits. Conference AFSA members at post. Crane summed up her impression of n January, AFSA State VP Louise Employees who met with Crane morale in the field as follows: “It is clear that Crane attended the Bureau of East Asia expressed concern about several issues. most entry-level employees are pleased with Iand the Pacific Entry-Level Conference First, the entry-level employees want to do the way the department treats them. They in Manila. She reports that it was an excel- away with the nomenclature “junior offi- know the world is a difficult and danger- lent conference and she was impressed by cer” and the “generalist” and “specialist” ous place and they do not complain about the entry-level professionals assigned to labels. AFSA agrees, and prefers more those conditions of service. They are being Embassy Manila who handled all the details. inclusive terms. A major concern of many supervised well and trained well. They “They and their EAP colleagues reinforced entry-level employees is the lack of spousal believe their work is appreciated. They are AFSA’s conviction that the rising genera- employment options. Equitable treatment enthusiastic and content with their choice tion of Foreign Service employees are a for Members of Household was another of the Foreign Service. That is a tremendous credit to the nation they serve,” she says. concern. Most people seem pleased with vote of confidence in the department’s man- Crane met with AFSA members in the department’s policy, but there are addi- agement and its managers.” ▫

out for surviving children? a permanently disabled child, the parent or The benefits are statutorily guardian must also submit a statement from A: determined by Section 806(c) of MED attesting to the child’s disability. the Foreign Service Act and adjusted each FERS/FSPS dependents must also apply year to reflect the change in the cost of liv- for Social Security benefits and provide the Q&A ing. The amount of benefits depends on Retirement Office with a copy of the award the number of surviving children and letter. The surviving parent or guardian is Retiree whether or not there is a surviving spouse. also responsible for informing the Retirement Annuity benefits payable under FERS/FSPS, Office when the child is no longer eligible Issues which reflects full participation in Social for Social Security or annuity benefits. This Security, are reduced by the amount of is particularly important because Social BY BONNIE BROWN, Social Security survivor benefits attribut- Security benefits can significantly reduce a RETIREE ACTIVITIES able to the deceased parent. Benefits are FERS/FSPS benefit. Since Social Security COORDINATOR generally paid to the surviving parent or the benefits for children generally end at age 19, Q: Are dependent children entitled to sur- person who has the care and custody of the the unreduced FERS/FSPS benefit would be vivor annuities in the event of the death of children. If the surviving spouse qualifies fully payable from age 19 to 22 as long as the a parent employee or retiree? for survivor benefits, the children’s bene- child is unmarried and a full-time student. In order to qualify for a survivor fits will be included in the monthly payment Q: Under what circumstances can a surviv- A: annuity under the Foreign sent to the spouse. ing child continue to be covered under the Service Act, a child must be financially depen- An unmarried participant in good Federal Employees Health Benefits Plan? dent on an employee or retiree at the time health who does not have a former spouse A child’s health coverage under of death. The child must also be unmarried, entitled to a survivor benefit can also elect A: the FEHBP will continue if the under age 18, or under age 22 and a full-time to provide a survivor benefit under Section deceased employee or retiree was enrolled student (at least 12 credit hours), or over age 806(f). However, this would be very cost- in a self-and-family plan, the child is 18 and incapable of self-support because of ly, reducing the retiree’s annuity by as much unmarried, and at least one family member a disability that occurred before the age of as 40 percent. is eligible for a survivor annuity. FEHB cov- 18. Children who qualify include legitimate Q: Are children’s survivor benefits auto- erage will continue until age 22. Health ben- children, adopted children, stepchildren who matically awarded? efits coverage can continue after age 22 if the lived with the employee or retiree at the time No. The surviving parent or person is unmarried and is incapable of self- of death, and recognized natural children. A: person responsible for the eligi- support because of a disability that is expect- Children are entitled to survivor benefits ble children must complete an Application ed to last more than one year. A child who regardless of whether or not there is a sur- for Death Benefits Form and submit a death loses eligibility for coverage may qualify for vivor spousal benefit. certificate as well as a birth certificate for each Temporary Continuation of Coverage Q: How are the benefits calculated and paid child to the Retirement Office. In the case of under the FEHBP. ▫

MARCH 2004 • AFSA NEWS 13 CLASSIFIEDS

PROFESSIONAL SERVICES U.S. TAX TIME IS HERE: Living abroad? SEEKIng RETIREd FSos. Government James Burgess Associates, Ltd. Certified contracting firm in Maryland is seeking recent- Public Accountants. Need help with U.S. taxes ly-retired USAID Foreign Service Officers in from an online tax preparer with 30 years’ such personnel categories as executive man- experience? Check out our Web page for free agement, health, population & nutrition, and interview software. Give us a call or send us program and project development to serve as coaches available to train, support and guide an e-mail. 6105 - A Arlington Boulevard, Falls new Foreign Service employees in their career TAX & FINANCIAL SERVICES Church, VA 22044-2708. Tel: (703) 534-9320. E-mail: [email protected] URL:www.jbaltd.com training and development, and to troubleshoot TAX RETURn PREPARATIo n And specific areas in their development that may Pl AnnIng from a CPA firm specializing in need additional attention. 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E-mail: [email protected], 3918 Prosperity Ave. #230, Fairfax, VA 22031 Web site: www.sthompson.fa.leggmason.com E-mail: [email protected] LEGAL SERVICES Tel: (703) 289-1167, Fax: (703) 289-1178. E-mail: [email protected] ATTo RnEY WITH 22 years successful vIRg InIA M. TEST, CPA: Tax service PRo FESSIo nAl TAX RETURn experience SPECIALIZING FULL-TIME IN FS specializing in Foreign Service/overseas con- PREPARATIo n: Thirty years in public tax GRIEVANCES will more than double your tractors. Co nTACT InFo : (804) 695-2939, practice. Arthur A. Granberg, EA, ATA, ATP. chance of winning: 30% of grievants win FAX: (804) 695-2958. E-mail: [email protected] before the Grievance Board; 85% of my clients Our charges are $75 per hour. Most FSO win. Only a private attorney can adequately returns take 3 to 4 hours. Our office is 100 feet PROPERTY MANAGEMENT develop and present your case, including nec- from Virginia Square Metro Station, Tax essary regs, arcane legal doctrines, prece- Matters Associates PC, 3601 North Fairfax Dr., KdH PRo PERTIES SERvES the prop- dents and rules. Call Bridget R. Mugane at Arlington, VA 22201. Tel: (703) 522-3828. erty management needs of clients in the close- Tel: (202) 387-4383, or (301) 596-0175. Fax: (703) 522-5726. in communities of McLean, Falls Church and E-mail: [email protected] E-mail: [email protected] Arlington. We have over 30 years experience Free initial consultation. in renting and managing. We are REALTORS and belong to the Northern Virginia Association ATTo RnEY, Fo RMER Fo REIg n SER- of Realtors. We manage: single-family homes, vICE o FFICER: Extensive experience w/ tax ATTORNEY problems peculiar to the Foreign Service. townhouses, condo units, as well as small g RIEvAnCE ATTo RnEY (specializing Available for consultation, tax planning, and community associations. We would be hon- since 1983). Attorney assists FS officers to cor- preparation of returns: ored to serve as your property manager. Our manager has earned and holds the designa- rect defective performance appraisals, to M. Bruce Hirshorn, Boring & Pilger reverse improper tenuring and promotion 307 West Maple Ave., Suite D, tion of Certified Property Manager. Contact board decisions, secure financial benefits, Vienna, VA 22180. Tel: (703) 281-2161. us for more info. Tel: (703) 522-4927, or defend against disciplinary actions and obtain Fax: (703) 281-9464. E-mail: [email protected] relief from all forms of discrimination. Free Initial E-mail: [email protected] Consultation. Call William T. Irelan, Esq. WJd MAnAg EMEnT IS competitively Tel: (202) 625-1800, Fax: (202) 625-1616. Pl ACE A Cl ASSIFIEd Ad: priced, of course. However, if you are con- E-mail: [email protected] $1.25/word (10-word min.) First 3 sidering hiring a property management firm, WIl l /ESTATE Pl AnnIng by attorney words bolded free, add’l bold text don’t forget the old saying, “You get what you who is a former FSO. Have your will reviewed $2/word, header, box, shading $10 ea. pay for.” All of us at WJD have worked for other and updated, or new one prepared: Deadline: 20th of the month for pub. property management firms in the past, and No charge for initial consultation. 5 weeks later. we have learned what to do and, more impor- , 307 M. Bruce Hirshorn, Boring & Pilger Ad Mgr: Tel: (202) 944-5507, tantly, what not to do from our experiences at Maple Ave. W, Suite D, Vienna, VA 22180 these companies. We invite you to explore our Fax: (202) 338-6820. Tel: (703) 281-2161, Fax: (703) 281-9464. Web site at www.wjdpm.com for more infor- E-mail: [email protected] E-mail: [email protected] mation, or call us at (703) 385-3600.

14 AFSA NEWS • MARCH 2004 CLASSIFIEDS

PRo PERTY MAnAg EMEnT TEMPo RARY Ho USIng REAL ESTATE PRUdEnTIAl CARRUTHERS REAl - PIEd-A-TERRE PRo PERTIES, l Td: HEAdEd To d.C.? Start planning now for To RS: Complete professional dedication to Select from our unique inventory of fully-fur- house hunting in Northern Virginia. Let my 16- the sale and management of residential prop- nished & tastefully decorated apartments & plus years of experience providing FS per- erty in Northern Virginia. Our professionals townhouses all located in D.C.’s best in-town sonnel with exclusive Buyer Representation will provide personal attention to your home, neighborhoods: Dupont, Georgetown, Foggy work for you. My effective strategy for home careful tenant screening, and video inspec- Bottom & the West End. Two-month minimum. buying will make the transition easier for you tions of your property. We are equipped to Mother-Daughter Owned and Operated. and your family! handle all of your property management Tel: (202) 462-0200. Fax: (202) 332-1406. Contact MARIl Yn CAnTREl l , Associate needs. We work 7 days a week! Alana Clark, Email: [email protected] Broker, ABR, CRS, GRI at McEnearney Director of Operations. vienna: www.piedaterredc.com Associates, 1320 Old Chain Bridge Rd., Tel: (703) 938-0909, Fax: (703) 281-9782. McLean, VA 22101. Tel: (703) 790-9090, E-mail: [email protected] TEMPo RARY Ho USIng ext. 246; Fax: (703) 734-9460. E-mail: WASHIngTon, d.C. or nFATC ToUR? [email protected] www.marilyncantrell.com PEAKE MAnAg EMEnT: Looking for a EXECUTIvE Ho USIng Co nSUl TAnTS great property manager experienced with FS offers Metropolitan Washington, D.C.’s finest PRUdEnTIAl CARRUTHERS REAl - clients? Call me to set up an appointment, or portfolio of short-term, fully-furnished and To RS: Complete professional dedication to to receive our free Landlord Manual. The equipped apartments, townhomes and sin- residential property in Northern Virginia. I pro- manual clearly explains the rental manage- gle-family residences in Maryland, D.C. and vide personal attention to you. Over 22 years ment process no matter which company you Virginia. real estate experience and Foreign Service choose. We’re professional, experienced and In Virginia: “River Place’s Finest” is steps overseas living experience. JOANN friendly. In business since 1982. Lindsey to Rosslyn Metro and Georgetown, and 15 PIEKNEY. vienna: Tel: (703) 757-7758, Fax: Peake: 6842 Elm St., McLean, VA 22101. minutes on Metro bus or State Department (703) 281-9782, E-mail: [email protected]. shuttle to NFATC. For more info, please call Tel: (703) 448-0212. Fl o RIdA E-mail: [email protected] (301) 951-4111, or visit our Web site: www.executivehousing.com l o ng Bo AT KEY, BRAdEnTo n/ SARASo TA: Area will exceed expectations. H.A. g Il l & So n, InC.: Family-owned gEoRgEToWn QUARTERS: Exquisite, Don’t miss owning in Florida. Resales, new and operated firm specializing in the leasing fully-furnished accomodations at the East End homes, rental management and vacation and management of fine single-family of Georgetown. Short walk to World Bank rentals. Dynamic growing company offering houses, condominiums and cooperatives in and State Department. Lower floor of three- personalized professional service. Contact: Washington, D.C. and Montgomery County level home built in 1803 and rehabilitated in Sharon E. Oper, Realtor (AFSA Member) since 1888. While we operate with cutting- 2003. Private front and rear entrances, eight- Wagner Realty. Tel: (941) 387-7199. edge technology, we do business the old-fash- foot ceilings, fireplace, marble bathroom with E-mail: [email protected] ioned way: providing close personal attention jacuzi and shower, granite and stainless steel to our clients and their properties. We provide kitchen, washer and dryer, walk out to tiered Fl o RIdA expertise in dealing with jurisdictional legal rear garden great for entertaining. Street no STATE InCo ME TAX enhances gra- requirements, rent control, property registra- parking and limited car/pick-up sharing with cious living in Sarasota, the cultural capital of tion and lead paint requirements. We closely management. Dishes, flatware, towels, linens Florida’s Gulf Coast. Contact former FSO Paul screen all tenant applications and are on-line and light maid service included. Preference Byrnes, Coldwell Banker residential sales with Equi-fax Credit Information Services which to single person or couple. Rate commen- specialist, by e-mail: [email protected] provides our firm with instantaneous hard-copy surate with housing allowance. Contact or Toll-Free: (877) 924-9001. credit reports. You can rest assured while you owner at: [email protected] or Tel: (202) 625- Bo CA RATo n, PAl M BEACH, Fo RT are abroad that your property will be in the 6448. l AUdERdAl E: Gracious living in vibrant S. most capable hands. Please call Florida with many cultural events, universities, John Gill Jr. at (202) 338-5000 or e-mail him FURnISHEd l UXURY APARTMEnTS: and sports. The Treasure Coast remains at: [email protected] for more info./ brochure. Short/long-term. Best locations: Dupont Circle, affordable w/ condos, villas, waterfront and golf Georgetown. Utilities included. All price communities in all price ranges. Enjoy TEMPORARY HOUSING ranges/sizes. Parking available. EuroMed living as your investment grows. Tel: (202) 296-4989, E-mail: [email protected] SHo RT - TERM REnTAl S FSO (ret.) assists with amenities, and spouse/agent shows range of retirement, CoRPoRATE APARTMEnT SPECIAl ISTS: 1768-74 U. ST/AdAMS Mo Rg An: investment and vacation properties. Contact: Abundant experience working with Foreign Unique spacious 2-BR apts w/terrace. In newly Tel: (561) 445-9923. E-mail: Service professionals and the locations to best renovated historic bldg. Individual HVAC units, [email protected] serve you: Foggy Bottom, Woodley Park, controlled entry system, hdwd flrs, all new MORTGAGE Cleveland Park, Chevy Chase, Rosslyn, appliances including W/D. Pkg. avail. Ballston, Pentagon City. Our office is a short walk For appt. call: (917) 567-4811. BUYIng o R REFInAnCIng A Ho ME? from NFATC. One-month minimum. All fur- Save money with some of the lowest rates nishings, housewares, utilities, telephone and REAL ESTATE in 40 years. Jeff Stoddard specializes in work- cable included. Tel: (703) 979-2830 or (800) 914- vIEnnA- WAl K To Vienna Metro, newly ing with the Foreign Service community over- 2802; Fax: (703) 979-2813. updated, 3 bedrooms and 3.5 bathrooms with seas and in the U.S. Call today and experi- Web site: www.corporateapartments.com finished basement, hardwood floors, new appli- ence the Power of Yes! ® Tel: (703) 299-8625. E-mail: [email protected] ances, Rent $1,850. Tel.: (703) 288-3969. E-mail: [email protected]

MARCH 2004 • AFSA NEWS 15 CLASSIFIEDS

VACATION SAnTo do MIng o , do MInICAn PET TRANSPORTATION REPUBl IC: Stay at a furnished apartment (two bedrooms, one bathroom and balcony) in an old colonial zone in Gazcue. 15 minutes walking distance to American Embassy, 1/2 block away from presidential palace, restaurants, public transportation. 30 minutes drive to the beach. $250/week. Room clean- ing and morning coffee (1) is included in the price. For more info. contact Elizabeth at Tel: (809)751-8352 or BETHAnY BEACH: Watch golfers on the do MESTIC / Wo Rl dWIdE SHIPPIng : E-mail: [email protected] 15th tee from your bedroom window and then Tel: (304) 274-6859, (888) 234-5028 grab your clubs and join them! Three-year-old www.actionpetexpress.com PAl M SPRIngS, CAl IFoRnIA: Beautiful E-mail: [email protected] townhouse in Bethany's prized Salt Pond com- house 3/3 spectacular mountain views, munity is available for rent for a winter escape jacuzzi, private. available winter 2004. $3,000 PET Mo vIng MAdE EASY. Club Pet ... or plan now for the summer of 2004. Sleeps monthly three month min. E-Mail: International, is a full-service animal shipper six; 10-minute drive to the beach. Salt Pond [email protected]. who specializes in local, national and inter- has an 18-hole golf course; natural mini-golf national trips. Club Pet is the ultimate pet care course; basketball, tennis, and shuffleboard BOOKS boarding facility in the Washington courts. Plus swimming pool (summer only). Metropolitan area. Located in Chantilly o l d ASIA/o RIEnT Bo o KS Bo Ug HT Bethany Beach is between Ocean City and Asian rare books. Fax: (212) 316-3408. Virginia, Club Pet is A.B.K.A. Accredited, and Rehoboth on the Delaware Coast. Off-season E-mail: [email protected] licensed by the U.S.D.A. as well as the TSA rentals, $300/weekend; in-season rentals, as an Indirect Air Carrier. Tel: (703) 471-7818 $800 to $1,500/week. For more info., JUNGLE PATHS AND PALACE TREA- or (800) 871-2535, www.clubpet.com, contact Carol: (202) 310-5491, or SURES (non-fiction). Set in India, a world of E-mail: [email protected]. E-mail: [email protected] fabulous palaces, temples, crowded towns and TAXI WASH. D.C. METRO AREA remote jungles, monsoons, tigers and strange FURnISHEd vACATIo n Ho ME: Florida customs. See FSJ, Nov. 2003, page 23, for AIRPo RT ACCESS SEdAn & University Park Sarasota/Bradenton area description. River of Pearls (non-fiction): trav- l IMo USInE SERvICES: Local and long-dis- short- or long-term. Large, elegant turnkey fur- el, history, Asia adventure, on the press now. tance services door-to-door. For airport trans- nished pool villa with lake view in golf course $18.95 + shipping = $20.15. Contact: Mary fers, business meetings, sight-seeing and spe- community; 2 bdms, 2-ﬁ baths plus den, fire- Seniff Stickney, 71 Fisherman's Cove, Ponte cial events. Serving Washington, D.C., place. Near airport and beaches and Vedra, FL 32082. Maryland and Virginia 24/7 to the airports: Sarasota's theaters, shops and restaurants. E-mail: [email protected] Dulles, Ronald Reagan and B.W.I. Call (202) Contact: Pauline Kemps, Jeannette & Rossi; 498-8708, or (202) 625-0300. Book rndtrip, Tel: (941) 953-6000. SHOPPING get $5.00 off. www.limo-access.com E-mail: [email protected] 110 - 220 vo l T STo RE MISCELLANEOUS MUl TI-SYSTEM El ECTRo nICS UnIvERSITY PARK SARASo TA/ PAl -SECAM-nTSC Tvs, SHIPPIn g Short- or long-term: BRAdEnTo n AREA: VCRs, AUDIO, CAMCORDER, Large, elegant turnkey furnished pool villa with Pl AnnIng To Mo vE o vERSEAS? ADAPTOR, TRANSFORMERS, lake view in golf course community; 2 bdrms, Need a rate to ship your car, household goods, KITCHEN APPLIANCES 2-1/2 baths plus den, fireplace. Near airport or other cargo going abroad? Contact g MS Wo Rl d WIdE PHo nES and beaches and Sarasota's theaters, shops SEFCO-Export Management Company for EPo RT Wo Rl d El ECTRo nICS and restaurants. Contact: Sandy Greiner, rates and advice. Tel: (718) 268-6233. 1719 Connecticut Ave NW Wagner Realty; Tel: (941) 794-2246 or toll-free Fax: (718) 268-0505. Contact Joseph T. Quinn. (Dupont Circle Metro. Btwn. R & S Sts.) (888) 691-1245). Visit our Web site at www.sefco-export.com TEl (202) 232-2244 (800) 513-3907 E-mail: [email protected] SCHOLARSHIP URL:www.220AV.TV SCHo l ARSHIP Co MPETITIo n: Open to nEW l o CATIo n members of State Department Federal Credit 1030 19TH ST.nW (between K & L Sts.) Union. Requirements: financial need, mini- Washington, D.C. 20009, mum 2.5 GPA, minimum 12 college cred- TEl (202) 464-7600. its completed. Deadline April 9, 2004. For InQUIRE ABo UT o UR PRo Mo TIo nS application, please visit our Web site at g overnment & diplomat discounts www.sdfcu.org or call Lucy Yohe at Tel: (703) 706-5019. 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16 AFSA NEWS • MARCH 2004 nce again the FSJ Ois seeking works of fiction of up to 3,000 words for its annual summer fiction issue. Story lines or characters involving the Foreign Service are preferred, but not required. The top stories, selected by the Journal’s Editorial Board, will be published in the July/August issue; some of them will also be simultaneously posted on the Journal’s Web site. The writer of each story will receive an honorarium of $250, payable upon publication. All stories must be previously unpublished. Submissions should be unsigned and accompanied by a cover sheet with author’s name, address, telephone number(s) and e-mail address.