ISOLATE OR ENGAGE ISOLATE OR ENGAGE Adversarial States, US Foreign Policy, and Public Diplomacy Edited by Geoffrey Wiseman Stanford University Press Stanford, California Stanford University Press Stanford, California © 2015 by the Board of Trustees of the Leland Stanford Junior University. All rights reserved. No part of this book may be reproduced or transmitted in any form or by any means, electronic or mechanical, including photocopying and recording, or in any information storage or retrieval system without the prior written permission of Stanford University Press. Printed in the United States of America on acid-free, archival-quality paper Library of Congress Cataloging-in-Publication Data Isolate or engage : adversarial states, US foreign policy, and public diplomacy / edited by Geoffrey Wiseman. pages cm Includes bibliographical references and index. ISBN 978-0-8047-9388-9 (cloth : alk. paper) ISBN 978-0-8047-9552-4 (pbk. : alk. paper) 1. United States—Foreign relations—1945–1989—Case studies. 2. United States— Foreign relations—1989—Case studies. I. Wiseman, Geoffrey, editor. E744.I693 2015 327.73009’04—dc23 2014044179 ISBN 978-0-8047-9555-5 (electronic) For Donna, Brady, and Dylan Contents Acknowledgments ix Contributor Biographies xi Introduction 1 Geoffrey Wiseman 1 Soviet Union/Russia: US Diplomacy with the Russian “Adversary” 24 Robert D. English 2 China: American Public Diplomacy and US-China Relations, 1949–2012 59 Robert S. Ross 3 North Korea: Engaging a Hermit Adversarial State 85 Scott Snyder 4 Vietnam: American and Vietnamese Public Diplomacy, 1945–2010 110 Mark Philip Bradley and Viet Thanh Nguyen 5 Libya: The United States and the Libyan Jamahiriyya: From Isolation to Regional Ally, 1969–2011 140 Dirk J. Vandewalle viii Contents 6 Iran: Public Diplomacy in a Vacuum 164 Suzanne Maloney 7 Syria: Public Diplomacy in Syria: Overcoming Obstacles 205 William Rugh 8 Cuba: Public Diplomacy as a Battle of Ideas 231 William M. LeoGrande 9 Venezuela: The United States and Venezuela: Managing a Schizophrenic Relationship 259 Michael Shifter Conclusion 280 Geoffrey Wiseman Index 303 Acknowledgments HIS BOOK IS THE RESULT OF A PROJECT SUPPORTED Tby a National Science Foundation (NSF) grant under the Minerva Research Initiative. The basic idea motivating the project, which I first broached in a 2008 conference paper, was that while there had been a sub- stantial interest in public diplomacy—generated mainly by the September 11, 2001, terrorist attacks and the US wars in Iraq and Afghanistan—years later no comparative multicountry study had been written on the role of public diplomacy with key adversarial states where the US maintains no, or less than full, diplomatic relations. The project and this book benefited from the contributions of many indi- viduals. I wish to acknowledge the contribution to the original project pro- posal made by Sherine Badawi Walton, USC Center on Public Diplomacy at the Annenberg School, and Shawn Powers, then a doctoral student working at the center. At the USC Center for International Studies (CIS), the project received superb support from Professor Patrick James and also from Erin Bar- ber, Marisela Schaffer, and Indira Persad. Furthermore, CIS provided supple- mentary funding support for the project at a critical moment. At the USC School of International Relations, Robert English, Linda Cole, Karen Tang, and Ashley Bonanno helped enormously. I also acknowledge the splendid organizational and editing contributions of Christina Gray as project coor- dinator, and the assistance of students Landry Doyle, Katherine Hill, and Anna Phillips. For his research, editing, and advice, I warmly thank Scot ix x Acknowledgments Macdonald. I also gratefully thank Jeri O’Donnell for her wisdom and assis- tance, and Dan Caldwell and Stan Rosen for their advice. At NSF, Jacqueline Meszaros oversaw the grant with energy and professionalism. I am extremely grateful for the time and energy that the reviewers devoted to their comments on the manuscript. They were not simply reviewing a manuscript but also engaging in field development. My final and very deep thanks go to Geoffrey Burn, James Holt, Tim Roberts, Kay Kodner and all at Stanford University Press. —GRW Contributor Biographies Mark Philip Bradley is the Bernadotte E. Schmitt Professor of History at the University of Chicago. He is the author of Imagining Vietnam and America: The Making of Postcolonial Vietnam, which won the Harry J. Benda Prize from the Association for Asian Studies; Vietnam at War; and is the coeditor of Making Sense of the Vietnam Wars and Truth Claims: Representation and Human Rights. Robert D. English is director and associate professor in the School of Inter- national Relations at the University of Southern California. His publications include Russia and the Idea of the West: Gorbachev, Intellectuals, and the End of the Cold War and Rebirth: A Political History of Europe since World War II (coauthored with Cyril Black and Jonathan Helmreich). He formerly worked as a policy analyst for the US Department of Defense and the Committee for National Security. William LeoGrande is a professor in the Department of Government at American University and a former dean of the School of Public Affairs. He is a specialist in Latin American politics and US foreign policy toward Cuba and Central America. He is coauthor with Peter Kornbluh of Back Channel to Cuba: The Hidden History of Negotiations between Washington and Havana and coeditor of A Contemporary Cuba Reader: The Revolution under Raul Castro. LeoGrande has served on the staffs of the Democratic Policy Com- mittee of the US Senate, and the Democratic Caucus Task Force on Central America of the US House of Representatives. xi xii Contributor Biographies Suzanne Maloney is a Senior Fellow at the Brookings Institution’s Saban Cen- ter for Middle East Policy. In 2003–2004, Maloney was Project Director for the Council on Foreign Relations’ Task Force on US-Iran Relations, where she oversaw activities of a task force cochaired by Zbigniew Brzezinski and Rob- ert Gates. She has testified in Congress on US policy toward Iran. Maloney is the author of Iran’s Long Reach: Iran as a Pivotal State in the Muslim World. In 2007, Maloney received a Meritorious Honor Award from the US Department of State. Viet Thanh Nguyen is associate professor of English and American Studies and Ethnicity at the University of Southern California. Nguyen is the author of Race and Resistance: Literature and Politics in Asian America and the novel The Sympathizer. He is also the coeditor of Transpacific Studies: Framing an Emerging Field. Robert S. Ross is a professor of Political Science at Boston College and asso- ciate at the John King Fairbank Center for East Asian Research, Harvard University. His publications include Normalization of US-China Relations: An International History; Re-Examining the Cold War: US-China Diplomacy, 1954–1973; and Negotiating Cooperation: The United States and China, 1969– 1989. Ross is a member of the US-China Working Group, established by the US Congress, the Council on Foreign Relations, and the National Committee for US-China Relations. William Rugh is the Edward R. Murrow Visiting Professor of Public Diplo- macy at the Fletcher School of Law and Diplomacy, Tufts University. He holds a PhD in international relations from Columbia. His publications include Front Line Public Diplomacy; The Practice of Public Diplomacy; Engaging the Arab and Islamic Worlds through Public Diplomacy; and American Encoun- ters with Arabs: The “Soft Power” of U.S. Public Diplomacy in the Arab World. Ambassador Rugh was a career US Foreign Service officer, serving among other diplomatic postings as Deputy Chief of Mission in Damascus and as US ambassador to Yemen and to the United Arab Emirates. He received the Mur- row Award for Excellence in Public Diplomacy in 1991. Michael Shifter is president of the Inter-American Dialogue and an adjunct professor of Latin American Studies at Georgetown University’s School of Foreign Service. He is coeditor of Constructing Democratic Governance in Latin America and author of “In Search of Hugo Chávez” (Foreign Affairs, Contributor Biographies xiii May/June 2006). Shifter has regularly testified before Congress about US pol- icy toward Latin America. Before joining the Inter-American Dialogue, he directed the Latin American and Caribbean program at the National Endow- ment for Democracy and, before that, the Ford Foundation’s Governance and Human Rights Program in the Andean Region and Southern Cone. Scott Snyder is senior fellow for Korea Studies and director of the Program on US-Korea Policy at the Council on Foreign Relations. Snyder lived in Seoul, South Korea as Korea Representative of the Asia Foundation (2000–2004). His publications include North Korea in Transition: Politics, Economy, and Soci- ety coedited with Kyung-Ae Park, China’s Rise and the Two Koreas: Shifting Security Dynamics, and Negotiating on the Edge: North Korean Negotiating Behavior. Dirk J. Vandewalle is associate professor of Government at Dartmouth Col- lege. Vandewalle is a Libyan specialist and has published many works on the country including Libya since 1969: Qadhafi’s Revolution Revisited and A His- tory of Modern Libya. He served as political advisor to UN Special Advisor Ian Martin, coordinator for the UN’s postconflict planning for Libya. He is currently also the Carter Center field office director in Tripoli, Libya. Geoffrey Wiseman is Professor of the Practice of International