The Foreign Service Journal, September 2004

Home , Barbara Bodine, Consular commission, Hume Horan, Ida Gibbs, Jeffrey Davidow, John Negroponte

REMEMBERING HUME HORAN ■ PIONEERING AFRICAN-AMERICAN DIPLOMATS

$3.50 / SEPTEMBER 2004 OREIGN ERVICE FJ O U R N A L S THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS

FIGHTING THE WAR ON TERRORISM Three Years After 9/11, Where Are We?

CONTENTS September 2004 ■ Volume 81, No. 9

F OCUSON C OUNTERTERRORISM REMEMBERING 9/11 IN MANHATTAN / 63 An eyewitness account of what Sept. 11, 2001, 23 / THE BRAVE NEW WORLD OF VISA PROCESSING was like in New York City. The events of 9/11 and State’s new partnership By David Casavis with the Department of Homeland Security have F EATURES forever altered consular work. APPRECIATION: HUME ALEXANDER HORAN, By Shawn Zeller 1934–2004 / 68 30 / ARE WE LOSING THE WAR ON TERRORISM? By Susan Maitra Three years after the 9/11 attacks, the threat from AFRICAN-AMERICAN CONSULS ABROAD, 1897-1909 / 72 terrorism is growing, not receding. It is At least 20 black consuls served during the Republican time for a reappraisal of our strategy. administrations of William McKinley and Theodore By Philip C. Wilcox Jr. Roosevelt. Here are their stories. 36 / FIGHTING TERRORISM IN EAST AFRICA By Benjamin R. Justesen AND THE HORN PROMOTING DEMOCRACY / 77 Six years after the bombings of our embassies in Nairobi Can a foreign policy apparatus configured to fight the and Dar es Salaam, U.S. counterterrorism efforts in the Cold War implement the Bush administration’s new region do not yet measure up to the threat. democracy-led U.S. foreign policy? By David Shinn By Aaron M. Chassy 43 / THE ANATOMY OF TERRORISM TELLING OUR STORY: THE NATIONAL MUSEUM Terrorism is an instrument or tactic — a weapon, OF AMERICAN DIPLOMACY / 82 not an enemy. Thus, a “war” on terrorism makes The Foreign Affairs Museum Council is working to no more sense than a “war” on war. establish the Department of State Visitor Center and By Ron Spiers National Museum of American Diplomacy. 51 / KAMIKAZES: PRECURSORS OF 9/11? By Stephen Low Today, 60 years later, the story of the kamikazes echoes C OLUMNS D EPARTMENTS eerily in the phenomenon of suicide bombing in the PRESIDENT’S VIEWS / 5 Middle East and the 9/11 attacks. LETTERS / 7 Get Smart By Jose Armilla CYBERNOTES / 14 By John Limbert BOOKS / 87 58 / HUMANITARIAN MERCENARIES SPEAKING OUT / 17 In the tense days following 9/11, the small U.S. embassies INDEX TO A Cry for Justice ADVERTISERS / 94 in Central Asia suddenly found themselves on the front By Larry W. Roeder Jr. lines of the war on terrorism. AFSA NEWS / By John W. Kropf REFLECTIONS / 96 CENTER INSERT By John D. Boyll

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 PATI CHAPLIN manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of advertisements herein Business Manager ATIANA FOELLER MIKKELA V. THOMPSON T C. G does not imply the endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E- Art Director CAROL A. GIACOMO MAIL: [email protected]. WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service CARYN SUKO SMITH WILLIAM W. JORDAN Association, 2004. Printed in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., Editorial Intern LAURIE KASSMAN Washington, D.C. 20037-2990. Printed on 50 percent recycled paper, of which 10 percent is post-consumer waste. KRISTOFER LOFGREN HOLLIS SUMMERS Advertising Interns BILL WANLUND EVAN WESTRUP TED WILKINSON Cover and inside illustrations by Phil Foster TINA O’HARA

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4 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 PRESIDENT’S VIEWS Get Smart

BY JOHN LIMBERT

This month’s exploit the obvious shortcomings of of them — have the training they need Foreign Service existing governments in many Islamic to represent our country’s interests and Journal deals with countries, insisting that, “If your rulers protect its security. To do their job, the terrorism. From are corrupt; if your country is weak and consular officers in Sanaa, for example, the perceptive arti- humiliated by foreigners; if your state will need to talk to more than the cles by our col- cannot provide you education, health minute percentage of Yemenis who leagues, one un- care or employment; and if you see no speak English. So will their political mistakable message future for yourself and your family — and other colleagues. comes through: pseudo-tough and then we have all the answers in a puri- The 9/11 Commission Report (p. phony-macho policies don’t beat terror- tanical, zealous and intolerant version 371) notes that 15 of the 19 airplane ists; smart ones do. Our enemies are of Islam that admits no doubt or ques- hijackers were Saudi Arabians. Yet clever, and assuming otherwise is dan- tioning.” how much did we know about militant gerous folly. Cynical, brutal, murder- The appropriate response to this Islamist groups in Saudi Arabia before ous and callous they may be. Stupid message is not to “dumb down” but to the attacks? How much did we know they are not. In my personal experi- get smart. Smart diplomacy, security, about the political and socio-economic ence, as individuals, terrorists can be military operations, law enforcement, undercurrents within that troubled almost rational. Many are well educat- public affairs, and intelligence-gather- society and elsewhere in the region? ed, from well-off families, and their ing will all work. And being smart starts Besides taking training seriously, we ranks include engineers, doctors, with knowing what we are facing. How also must offer a reasonable career teachers and journalists. much did we know about Afghanistan, path to those who choose to specialize Not only are terrorist leaders not for example, before the events of 9/11? in an area or a language. We in the stupid, they also skillfully exploit what Did we know how freely the al-Qaida Foreign Service respond very well to George Orwell, in 1984, called “collec- apparatus could operate there under rewards and punishments. The person tive stupidity” — the failure to see the Taliban patronage? Did we know that who goes deeply into Africa, China or most obvious contradictions in an argu- the terrorists had essentially bought the Indian subcontinent, for example, ment; the failure to apply cause and themselves a country using money and should be able to expect that 1) the effect; and the willingness to swallow fighters to help the Taliban fight a civil Service will make good use of that and regurgitate the most blatant clap- war? Or did we somehow think that we expertise; and 2) all things being equal, trap. It is this same collective stupidity could separate al-Qaida from the he or she can expect promotions and that makes terrorists impervious to Taliban and, with the weight of evi- assignments that recognize that hard- argument or reason. dence, convince them to hand over bin earned knowledge. Al-Qaida and the most extreme of Laden and his associates to justice? In One wishes that being smart — and the so-called salafi (Sunni Islamist) those days we spoke of “draining the following many of the excellent recom- groups, for example, feed their follow- [Afghanistan] swamp” to catch the alli- mendations in the 9/11 Commission’s ers a mixture of anti-Semitism, xeno- gators. Like the shark-hunters of Jaws, report — would guarantee that we will phobia, and bad history, such as the however, we needed a much bigger never again be caught off-guard by ter- assertion that the Crusades did not end boat! rorists, either in New York or in eight centuries ago. These groups also How do we start being smart? For Nairobi. Sadly, our being smart may one thing, we stop devaluing language not end terrorist outrages — but it is John Limbert is the president of the and area expertise in our own ranks. still the strategy with the best chance of American Foreign Service Association. We must ensure that our people — all success. ■

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 5 THE REMINGTON

6 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 LETTERS

Returning the Favor Steve Honley encouraging construc- privileges to members of household I was the labor attaché at our tive dissent and expressing concern while there continues to be significant embassy in San Salvador from 1985 to for the lack of it, and on the very next inequality in the way an entire cadre 1987. Jose Luis Grande Preza, the page began an otherwise excellent of FS employees are treated in the courageous leader of the General and informative article (“Not Quite field? Workers Confederation trade union, Family: ‘Members of Household’ at Benefits for MOHs would un- once remarked to me: “You State”) that did not express even one doubtedly be an overall morale boost, Americans are here now risking your dissenting opinion about, nor discuss but could have the opposite effect on lives to help El Salvador in its time of any negative consequences from, the certain ranks within the Foreign need. We will never forget this. A day department’s MOH policy. Service if they are afforded the bene- will come when the United States will One may ask, “What negative con- fits that come with being on the “dip need the help of Salvadorans, and we sequence could possibly come from list” while full-time FS employees at will be there to give it.” giving more benefits to employees, at the same posts do not enjoy those While reading “Foreign Service little or no cost to the government?” privileges. It appears that the depart- Firefight” (FSJ, June) in which Phil But we have hundreds of specialists ment values a domestic partnership Kosnett described how members of overseas who are still not afforded more than my 18 years of government the Salvadoran Army’s Cuscatlan the same privileges and protections service. Perhaps the State Depart- Battalion helped to save his life in as their generalist counterparts. ment and AFSA should first focus on Iraq, I thought of how true Grande Now AFSA is working with the pushing along those posts that make Preza’s statement was. department to give unmarried little to no effort in addressing the Francis (Paco) Scanlan domestic partners and family mem- deficiencies that exist where diplo- State Dept. Adviser for bers benefits and privileges. While matic status benefits one group of International Affairs none of these privileges appear to be employees over the other. Air War College anything that all employees don’t Randy S. Lea Montgomery, Ala. enjoy, could this lead to full diplo- Information Management matic recognition and the benefits Specialist Privileges for Specialists First that accompany this distinction? Washington, D.C. When AFSA recently solicited How long will it be before those in comments regarding the department’s the specialist grades will have to Putting a Value on Family Members of Household policy for its watch unmarried domestic partners I wish to salute the editor, author June FSJ article, I took the opportuni- and other MOH shopping at duty- and the editorial board for the ty to express my views on what I see as free shops, buying tax-free gasoline, recent cover story on Members of an important issue that could have far- and driving cars with diplomatic Household (June). “Ineligible family reaching effects on everything from plates, while they themselves are members” is an important topic to morale to diplomatic readiness. I was paying full price for basic essentials? many officers and it deserves manage- impressed when I received an e-mail I’m not in the least opposed to ment’s immediate attention. from the author of the article asking if granting benefits to MOHs, and over- For 10 of my 15 years of service, I would be willing to discuss my com- all, it is a wonderful program that I my life has been enriched by sharing ments on the phone. I provided a support. The Foreign Service, how- the FS experience with a domestic contact number but was never called. ever, is a unique lifestyle, as are the partner. But in addition to the costs I found the June issue a bit ironic. benefits we enjoy. Will AFSA and the that every FS spouse incurs in his or First, there was a letter from Editor department seek to grant diplomatic her own career, we face substantial

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 7 L ETTERS live better.

brand new luxury high rise : fully appointed one, one bedroom dens and two bedroom corporate suites : state of the art fitness and business centers : heated outdoor lap pool : additional obstacles and expenses custom made mahogany furniture : fully equipped kitchens : luxury towels and linens : soft, firm or hypoallergenic pil- due to the lack of benefits, medical low selection : weekday club breakfast serving Starbucks® coverage, work permits, visas, etc. for Coffee : afternoon Tazo® Tea : digital premium cable and our partners. If there were any doubt high speed internet : 27” and 20” sony wega tv and dvd : sony cd stereo : free local phone : on-site management, about how much we value our fami- maintenance, housekeeping : concierge services : walking lies, those additional sacrifices should distance to ballston common mall, ballston and virginia square metro stops put a dollar figure on it. Eric G. Nelson Management Officer American Consulate General Milan

Not a Cent for My Cat Your June article on MOHs contained a comment by Andy Ball say- korman communities arlington ing that his cat gets more benefits than his domestic partner. CORPORATE SUITES Mr. Ball, please tell me one single arlington, va 880 north pollard street benefit that the department provides 866.korman.4 : kormancommunities.com to your cat, or to you on behalf of your cat. I’ve had a cat ever since my first tour, and the department has never spent a red cent on his travel, his health, or anything else. Nada. Nor has the department ever made any effort to lobby foreign governments to stop quarantine regulations. And if I bid on an assignment in a country that subsequently bans pets, the department would expect me to get rid of the cat. Linda Eichblatt Consul Consulate General Barcelona

Accommodating Modern Families Thanks for your coverage of the MOH issue in the June issue of the Foreign Service Journal. This is an extremely important issue for the Foreign Service of today. If the Service is unable to make these changes to accommodate diverse and modern families, our government risks losing many qualified and motivated employees. Jason N. Lawrence Foreign Service Officer Washington, D.C.

8 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 L ETTERS

Changing FS Culture Your survey of incoming FSOs was excellent (“Special Report: New Hires and the Foreign Service,” June FSJ). It would be marvelous if the “newbies” brought about some change. Of course, I heard echoes of things I have been commenting on all these years, as well as the many other “just spouses” I have known. I hope that the influx can bring changes to the Foreign Service culture, just as the mass of baby boomers made changes to U.S. culture in the sixties. Victoria H. Hess Chief Executive Officer Tales from a Small Planet

Drumbeat of Indifference I read John Limbert’s June AFSANET President’s Report on the studied indifference by Hill staffers to the Foreign Service, its people and its mission. The same report also noted concern over USAA’s equally studied indifference to our sister agencies — USAID, FAS and FCS. I am saddened but not surprised. columbia plaza While we have always had a prob- apartments lem with visibility and thus credibility, Capital Living With Comfort and Convenience the last few years have seen a steady 24 Hour Fitness drumbeat of indifference if not out- Center right disdain for diplomacy and diplomats. In his 2003 State of the Union address, the president declared “the time for diplomacy has passed.” The president tasks the military with the mission of post-conflict reconstruc- Utilities Included tion, after having spent a campaign Complimentary Voice Mail Beautiful and Spacious: denigrating “nation-building” as a Courtyard Style Plaza Polished Hardwood Floors Efficiency$1,100 - $1,250 worthy task of our government and 1 Bedroom 1,400 - 1,700 our people. I understand that the Private Balconies Huge Walk-in Closets 2 Bedroom 2,100 - 2,700 same attitude and atmosphere of dismissal permeate Afghanistan and 2400 Virginia Ave., N.W 24 Hour Front Desk Haiti. Washington, D.C., 20037 Garage Parking Avaliable Tel: (202) 293-2000 On June 29, Deputy Secretary Controlled Access E-mail: [email protected] Richard Armitage came to our Potomac River Views defense at a hearing before the Minutes to Fine Dining Newly Renovated Kitchens Office Hours: Mon. - Fri. 8:00 AM-5:30 PM Armed Services Committee, but Sat 10:00 AM-4:00 PM however sincere, it was an aside. In Directly across the street from Main State, minutes to Kennedy Center and Georgetown many ways, efforts by Secretary

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 9 L ETTERS

Powell to raise our profile, our worth nent (“Africa Can Make It — And cle, “Thirty Years in Africa and Still and our funding have implicitly fed How We Should Help,” May). The Looking for Answers,” in the March the assumption that diplomats are reality for most places in Africa is that 2002 edition of the FSJ, is perhaps unworthy. Powell refers to us as “the the average family is worse off today my best reply to the May 2004 arti- front line” and as “his troops.” We than it was 20 years ago. Given my cles. I am working hard to find as have value only if we can be repainted own strong commitment for more many positive things to say when I as warriors in suits. It is demoralizing than 30 years to the betterment of write the “35 Years” version of my “me, too-ism” that may have gotten us Africa, this is not an easy thing to article. But for now, I am left look- more funding, but no respect ... and admit, but denying the truth about ing for answers and the happier the funding will not last. Africa’s serious development predica- times like those described in my Philosophically, everything we ment is not helpful. May 2004 FSJ reflection, “My First stand for — internationalism, multi- Things in Africa would have been Christmas in Africa.” lateralism, consensus, negotiation, hard enough, but now, the heart- Before I get on the plane in etc. — is scoffed at by elements of breaking HIV/AIDS pandemic makes Maputo to go to Addis Ababa, I would this administration. No wonder nei- reversing the downward poverty like to salute the Journal for dedicat- ther staffers nor USAA takes us seri- trend for the majority of Africans even ing the May issue to Africa. I hope we ously. more difficult. HIV/AIDS has can count on seeing at least one edi- We know the dangers, commit- become both a result and cause of tion per year devoted to Africa. ment and sacrifice that are a daily part poverty, and we are now witnessing a Mark G. Wentling of the Foreign Service. We have decline in key human development USAID Senior Foreign stayed with the Service. State has the indicators in those countries with a Service, retired lowest attrition of any government high HIV prevalence rate among Maputo, Mozambique agency, despite what we expect of our adults. It is undermining decades of people day in and day out around the progress in Africa and we probably Pay Attention to Proxy Wars world. have not yet fully grasped the disas- Thank you for the articles about But until and unless who we are trous magnitude of the pandemic, Africa in your May issue. They were and what we do is valued in and of which still has some years to go before uniformly of high quality. Professors itself — consistently, publicly and as reaching its peak. Sadly, the worst is Ottaway, Herbst and Mills (“Africa’s strongly as the foot-stomping support yet to come in Africa. Big States: Toward a New Realism”) for the troops — then I am afraid that Yes, here and there we see some have done an excellent job of propos- the efforts of those of us who serve in positive changes, and there are many ing a new approach to the majority of Iraq will fall as flat as efforts by others unsung heroes in Africa. But overall Africa’s big states that are dysfunc- have over the years. the situation is more daunting than tional politically, economically and When my brother was in the mili- when I first arrived in Africa in 1970. socially. I agree with most of their tary he used to joke that he only had New leaders are making some right policy recommendations. However, I to do his job if I didn’t do mine. He moves, but these changes are coming am deeply disappointed by their curt assumed that I would, at least, get the when the poverty reduction chal- dismissal of proxy wars as a major chance to do mine before he was lenges are much greater and, in the impediment to the state-building that called upon to do his. meantime, the rest of the world has they so fervently advocate. Barbara Bodine moved on. Africa was dealt a bad When the authors state that the Ambassador, retired hand from the start and the leader- international community should not Alexandria, Va. ship played this hand poorly, thereby try to offer a guarantee of survival to making it more difficult to move countries threatened by internal Africa’s Glass Less ahead today. No matter how well forces, they are missing the main than Half-Full managed and governed, it will take point. There are no purely internal While I have a high regard for even the better-off countries in Africa forces in Africa. All internal insur- Ambassador Tibor Nagy and his many decades at best to graduate from the gents, rebels, bandits or whatever one years of dedicated service in Africa, ranks of low-income countries. calls them, have external partners. the facts make it difficult for me to I do not want to be labeled an These partners are always sovereign share his optimism about encouraging Afro-pessimist, but we need to con- regimes. trends on this long-suffering conti- sider what the facts tell us. My arti- Sure, the giant Congo (Kinshasa)

10 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 L ETTERS MARKETPLACE Web access to major advertisers. Go to www.afsa.org Click on Marketplace tab on the marquee could have resisted the joint invasion Africa virtually incurable. Liberia and Bukkehave of its territory in 1998 by its much Sierra Leone were failed states before www.Bukkehave.com smaller neighbors Rwanda and they became victims of external Charles Smith Corp. Living Uganda if it had a functioning gov- aggression via so-called internal fac- www.SmithLiving.com ernment with a decent military. But tions. But does that mean the inter- that invasion cost three million lives national community should say “we Clements International inside the Congo and set the country told you so” as it later spends billions www.Clements.com back in its development far more than picking up the pieces? Diplomatic Auto. Sales it would have suffered if erratic If we continue to maintain a state www.DiploSales.com President Laurent Kabila had contin- of denial about proxy wars in Africa, Executive Club Suites ued in power another few years. our policy toward that troubled conti- wwwEexeClubdc.com Dysfunctional as he was, Kabila was nent doesn’t stand a chance. beginning to devote state resources to Fortunately, the current U.S. admin- Harry Jannette International rebuilding infrastructure. He even istration has started to use its consid- www.Jannetteintl.com conquered inflation and stabilized the erable leverage to begin eliminating Hirshorn Company, The economy, weak as it was. To “punish” this plague. www.Hirshorn.com Uganda and Rwanda, the internation- Herman J. Cohen Laughlin Management al community plied them with bud- Ambassador, retired www.Laughlincompanies.com getary support and debt relief. After Washington, D.C. all, Uganda and Rwanda were imple- Long & Foster menting structural adjustment by the Remembering Howard Myers www.Simunek.com book. The so-called internal anti- While the Journal has noted the Marriott Kabila rebels supported by Uganda death of an old AFSA warhorse — www.StayatMarriott.com/ and Rwanda were totally organized, Howard Myers — no one has come relocations financed and armed by these two forward with any recounting of the Oakwood aggressor states. The armed terrific behind-the-scenes contribu- www.Oakwood.com Congolese opposition factions were tions Howard and his late wife, Hope, pure political fiction. made to AFSA. Prudential Carruther/Piekney www.foreignservicehomes.com Cote d’Ivoire enjoyed decent How well I remember the dark political, economic and social institu- days of the mid-1970s, when the elec- Prudential Carruthers tions in 1999 when an army mutiny tion of a disparate set of AFSA www.PrudentialCarruthers.com was financed and supplied by neigh- Governing Board members caused Quality Hotel boring Burkina Faso. It went down- internal turmoil and lots of acrimony. www.HotelChoice.com/hotel/ hill from there. The French were The slate was headed by a selected- va58 remiss in not using their garrison near out FSO who came into office with Remington Abidjan to quell the mutiny. Five his own personal vendetta against the www.Remington-dc.com years later, the French were forced to Department of State. His plan was to spend hundreds of millions of dollars use AFSA as his speaking pad, totally SDFCU to pacify the southern half of the ignoring the views of the board. www.sdfcu.org country that is now de-facto parti- Howard was the steady hand guiding State Plaza tioned in a manner that makes no many of us on the board to cope with www. StatePlaza.com sense. A country that was once an this situation. economic engine of growth in West When some of us were sued in U.S. Gov’t Printing Office http://.bookstore.gpo.gov/sb/ Africa has been set back 50 years court, again Howard provided calm sb-075.html because of internal destabilization and wise counsel. He then helped imported from next door while the orchestrate the recall of this presi- WJDManagement international community remained dent, insisting that we follow all www.WJDpm.com passive. applicable regulations and laws irre- For more information about The authors are wearing blinders if spective of the emotions in evi- advertisers in the Journal go they fail to see that external aggres- dence, which were admittedly at an to: www.afsa.org/marketplace sion is making state dysfunction in all-time high. For this counsel,

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 11 L ETTERS

Howard and his wife were slandered the Arab oil producers were moving assignment overseas following my and abused, but both stayed the toward the creation of an oil cartel INR experience. course until the president was suc- and that the U.S. might expect an oil David Timmins cessfully recalled and board member embargo within the next few months FSO, retired Pat Woodring took the helm, again as a tool for raising oil prices signifi- Professor of Economics, thanks to Howard’s behind-the- cantly, thus enriching the coffers of Brigham Young University scenes actions. And for the first time the oil-producing countries. Exer- Salt Lake City, Utah in AFSA history, the organization cising his “discretion,” the assistant had a female president. secretary for INR refused to Grading Positions, Howard’s deeds were done with approve the paper for distribution Not Performance no thought of acclamation. His keen because he regarded it as “alarmist” I am a human resources officer in mind and great legal abilities were and anyway, “every economist knows Brasilia, and one of four certified extremely useful at this traumatic that cartels don’t work” (though the “CAJE-ers” mission-wide. I read time in AFSA’s history. The associa- Saudis apparently didn’t know that, Alexis Ludwig’s article on the tion should recognize this great con- and the economists of the world may Computer Aided Job Evaluation tribution, for it might not have sur- have a different opinion now, 35 process (“Liberating FSNs from Their vived without the contributions of years later). ‘CAJE’”) in the April Journal and someone like Howard Myers. Anyway, three weeks later, after wonder how he reached some of the Roy A. Harrell Jr. the public announcement of OPEC’s conclusions he did about its shortcom- Life Member of AFSA formation had taken place and there ings. FSO, retired were long lines waiting to fill up at He states that “... the CAJE cal- Ozona, Texas gas stations across the country, I got culus implicitly assigns more value to a call requesting the paper. The the work done by the FSNs in the Praise for INR front office did a little editing, and Admin/GSO fields ...” In fact, CAJE There has been much to-do about we were the first agency in govern- evaluates five areas: Knowledge, the CIA’s failure regarding pre-Iraq ment to come out with an analysis of responsibility, intellectual skills/ war intelligence. The June FSJ the probable effects of OPEC on the communication, and working envi- (“INR’s Track Record Highlighted,” world economy and the cost to ronment. None of these values Cybernotes) reports a Washington America. advantages any position over anoth- Post article praising the State I’ve always wondered whether er. For example, knowledge and Department’s Bureau of Intelligence being first in the field with an accu- communication combine to weigh and Research as the best among the rate prediction would have made 50 percent of a position’s overall U.S. government’s intelligence ser- any difference. Intelligence is “score.” Therefore, political assis- vices, pointing to INR’s more cau- always imperfect. I’m not sure tants, by virtue of their advanced tious analysis of bomb damage in whether more accurate information knowledge (gauged by education Vietnam, the trouble admitting the from the CIA would have been any level, knowledge of the local political Iranian shah to the U.S. for medical more believable than its misplaced scene, etc.) and their highly-valued treatment might entail, and the confidence that Iraq actually had contacts (scored under communica- probable outcome of a U.S. invasion WMDs rather than merely the tech- tion), would receive high CAJE of Iraq. nology to produce them. rankings. My experience at this mis- Intelligence is always based on But based on my experience sion bears that out. imperfect knowledge and the judg- working with DIA and CIA officers, Mr. Ludwig goes on to say that “... ment of analysts — in effect reading I think David Ignatius’ assessment unlike the personnel system for the straws in the wind. But your that INR is the best of the pack is rest of the Foreign Service, CAJE Cybernotes article puts me in mind right on target. I have fond memories assigns rank to the position, not the of another experience in which INR of my colleagues and two years in person ...” No FS position is assigned clearly outshone the competition. INR. This is another example of an a grade based on the incumbent’s per- Back in 1973 when I was deputy assignment that is often disdained by formance or personal grade. Positions director of the Office of Economic regular FSOs, but which can be high- are graded by the needs of the job, and Research and Analysis, our team ly rewarding — and which didn’t hold the incumbent is assigned to fulfill produced a report cautioning that up my next promotion or a choice those needs, not vice-versa. It is true

12 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 L ETTERS

that when we evaluate through CAJE we are not interested in the accomplishments of a single individual who, no matter how fabulous, happens to encumber a particular position. What we are interested in is grading properly each position, based on the supervi- sor’s and the mission’s needs. Mr. Ludwig’s third assertion is that “CAJE fails to recognize or assign value to some of the most important characteristics of superior ‘substantive’ FSNs ...” That’s right, because we are not evaluating an individual’s performance. We are deliberately unconcerned with how an incumbent may perform, even if that job performance is well beyond his/her position description. Rather, we are interested in the position because for years, job-grading was often influenced by an incumbent’s performance, with jobs sometimes being graded artificially high, and bearing no relationship to the actual needs of the position or the mission. The purpose of CAJE is to bring equity to job-grading. Historically, there was a strong, if unintentional, element of elitism in the system, with positions deemed to have no “substance” graded lower than others, though they may have had enormous financial, supervisory or other responsibilities. Thus, CAJE is not the department’s “hidden agenda” to downgrade or eliminate positions in an effort to economize. It is, rather, an effort to correct past inequities and properly to define exactly what we need by way of staff. In this era of shrinking budgets, we need to know that we are getting our money’s worth by defining — through our job requirements — precisely what we need to function, then hiring and retaining personnel whose knowledge, capabilities and experience fit that need. Catherine J. Elliott Human Resources Officer Embassy Brasilia ■

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 13 CYBERNOTES

Embassy Baghdad Opens: And Now for the Hard Site of the Month: www.embassyworld.com Part… ave you ever been frustrat- Web site also provides a comprehen- On June 30 Embassy Baghdad ed trying to find informa- sive collection of links to foreign mis- became one of the largest diplomatic Htion about the Swedish sions across the globe. posts in the world. While Embassy embassy in Manila or the Pakistani In addition, Embassy World offers Cairo and our missions in Bangkok embassy in Athens? Are you curious useful information for those living employ more staff, the new embassy about what the outlet voltage is in abroad, including an international in Iraq is the largest diplomatic mis- Turkey? Have you ever wasted time voltage directory, a collection of coun- sion of the United States. The new trying to figure out how to make a try maps and a telephone code listing American ambassador, John Negro- telephone call from Bolivia to for all of your international calls. ponte, and his team of nearly 200 Botswana? There are also valuable links to other courageous Foreign Service employ- For most people, the answer to sites offering international employees now face the difficult task of help- these questions is probably “no,” but ment and real estate resources. ing Iraqis rebuild their country and in that rare moment when you need Begun in 1996, Embassy World is make it secure without acting as an information about that odd embassy a network of seven major Web sites, overlord of the emergent Iraqi gov- relationship or telephone code, two magazines based on internation- ernment. Embassy World (www.embassy al investment, the largest relocation The kidnapping of a senior world.com) has it covered. network in the world, the largest Egyptian diplomat in Baghdad on July Embassy World provides links to overseas employment database, the 23, an escalation in the wave of kid- nearly every diplomatic office of largest international real estate data- nappings that began in April to every country in the world. It offers base, and the largest Caribbean real enforce demands for foreign troops links to American posts abroad, as estate database. and businesses to leave Iraq, under- well as links to foreign embassies and — Kristofer Lofgren, scores the dangers the diplomats face. consulates in the United States. The Editorial Intern The new embassy, located inside the “Green Zone” of Baghdad, is the first official U.S. diplomatic presence More than 190 FS officers and spe- outreach programs while overseeing in Iraq since the eve of the 1991 cialists will be posted to Baghdad and the more than 130,000 American Persian Gulf War. The embassy will the four consulates in Basra, Mosul, troops who continue to be the face of have a budget of $1 billion for Fiscal Kirkuk and Hilla. In the long term, the United States for most Iraqis. Year 2005, and will oversee the distri- the embassy will have approximately Though FS employees in Iraq bution of $18.4 billion in congression- 60 Marine guards and will make use serve just one year, after months of liv- ally-mandated aid to Iraq. of more than 140 armored vehicles. ing, showering and sleeping in con- There are currently more than 700 However, until the security situa- verted shipping containers under the Iraqis employed by the embassy tion improves in Iraq, the work of U.S. constant threat of rocket attack, many alongside nearly 1,000 American per- officials will be hampered by an will no doubt feel like they have been sonnel. Over time many jobs current- inability to make meaningful contacts in the country much longer. For their ly filled by American contractors, such beyond the embassy walls. Public brave efforts, they receive 25-percent as security guards and cooks, are diplomacy, in particular, faces tremen- hardship and 25-percent danger pay. expected to be turned over to Iraqi dous obstacles, and will depend heav- There are several Web sites that workers. Staff from at least 12 agen- ily on the work of FSNs. All person- are useful for tracking the reconstruc- cies and departments will work in the nel must deal not only with a danger- tion efforts in Iraq. The official Web new embassy. ous environment but must also devise site of Embassy Baghdad is http://

14 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 CYBERNOTES

iraq.usembassy.gov. The Iraq Libya became the first country in over Project and Contracting Office (www. his embassy [Baghdad] is 30 years to voluntarily give up its rebuilding-iraq.net), formerly part Tgoing to have a thousand weapons of mass destruction without of the Coalition Provisional Authority people hunkered down behind a change of regime. and now within Embassy Baghdad, sandbags. I don’t know how In April 2004 the U.S. lifted its manages the $18.4 billion in aid for you conduct diplomacy in that sanctions against Libya. The State the rebuilding of the Iraqi infrastruc- Department, however, continues to ture. USAID (www.usaid.gov/iraq) way. list Libya as a state sponsor of terror- has taken the lead on health and edu- — Edward L. Peck, U.S. ism due to “residual contacts with cation development. The Depart- ambassador to Iraq, some of its former terrorist clients” ment of Commerce (www.export. 1977-80, in the Boston Globe, (www.travel.state.gov/libya), gov/iraq) is working to promote thereby preventing U.S. exports, such June 26, 2004. American exports in Iraq and encour- as advanced oil and gas technologies, age Iraqi businesses. Finally, the from reaching the economically hand- Army Corps of Engineers (www.hq. icapped desert autocracy. usace.army.mil/cepa/iraq/iraq. a result, in September 2003, the U.N. Libya sits on 36 billion barrels of htm) has worked hard to reconstruct lifted its sanctions. proven oil reserves, worth more than Iraq’s oil sector and to restore electric- Qadhafi first offered to abandon $1 trillion at current world prices, ity to the Iraqi people. Libya’s weapons programs as early as though, according to the Department — Kristofer Lofgren, 1999, but in March 2003 intense of Energy’s country analysis brief Editorial Intern negotiations with American and (http://www.eia.doe.gov/emeu/ British officials began, and on Dec. cabs/libya.html), only a quarter of A New Day for Libya? 19, 2003, the deal was finalized. the country has been explored due to For the first time in 24 years, the Qadhafi officially swore off weapons a lack of technical infrastructure. U.S. government will have an official of mass destruction and agreed to Libya, with Africa’s largest oil supply, diplomatic relationship with Mu’am- thorough inspections and the surren- would like to increase production mar al-Qadhafi’s Libya. On June 28, der of all materials related to its from less than 1.5 million barrels per Assistant Secretary for Near East nuclear, chemical and missile pro- day to over two million barrels per day Affairs William Burns opened a U.S. grams. In surrendering its programs, by 2010 with the help of new Liaison Office in Tripoli as an intro- ductory step toward normalizing relations. The oil-rich North African dic- 50 Years Ago... tatorship seems poised to play a grow- Those of us whose business it is to meet our country’s ing role in strategic equations con- external dangers, however, know how much the national cerning Africa and the Middle East. Libya’s return to the international security depends on positive qualities, on the dedication, fold has been a lengthy process that the vision, the energy, the intellectual development, and has shown the benefits of long-term the accumulated knowledge of those who compose the government. diplomacy. In 1999, Libya surren- Staff it with wooden Indians and the interests of our country’s enemies dered two suspects in the Pan Am will be abundantly served. Flight 103 terrorist bombing case, and subsequently accepted responsibility — From “The Interests of the National Security,” Editorial, FSJ, September for the atrocity and finalized a com- 1954. pensation package for the victims. As

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 15 C YBERNOTES

American investment. dealings with Israel before they would mament story produced by the American energy companies had be allowed to operate in the country, a Congressional Research Service of not been allowed to pump their requirement since dropped under the Library of Congress in April 2004 Libyan wells since 1986, but as of pressure from the U.S. fills in some recent history (http:// June the wells began pumping again, During the long hiatus in relations, www.policyalmanac.org/world/ and American companies such as familiarity with developments in the archive/disarming_libya.pdf). A ExxonMobil, ConocoPhillips, Mara- country and knowledge of its people March 2004 report from the American thon, Amerada Hess and Occidental and their history has been limited in Enterprise Institute advocates a cau- began new exploration into Libya’s the U.S., confined mostly to academic tious approach to Libya’s new turn untapped resources. specialists. For more background, (http://www.aei.org/docLib/2004 Though Qadhafi seems to have there are a number of online sources. 02271_%2316423graphics.pdf). turned a new leaf in his relations with Both the CIA World Factbook chap- A State Department report details the international community, his enig- ter on Libya (http://www.cia. human rights abuses in Libya in 2003 matic and obstinate persona has not gov/cia/publications/factbook/ge (http://www.state.gov/g/drl/rls/ changed. Upon the death of os/ly.html) and the State Depart- hrrpt/2003/27933.htm). President Ronald Reagan in early ment Background Note (http://www. One easy-to-use Web site collects June, Qadhafi expressed regret that state.gov/r/pa/ei/bgn/5425.htm) all the latest news about Libya from Reagan never stood trial for ordering are current as of 2003. The Library of international media (http://www. the reprisal bombings of Libyan tar- Congress has a detailed history of libyadaily.com), making current gets in 1986. Similarly, Libya initially Libya from antiquity to 1987 (http:// developments easier to follow. insisted that all foreign companies lcweb2.loc.gov/frd/cs/lytoc.html). — Kristofer Lofgren, sign a letter declaring that they had no A short overview of Libya’s disar- Editorial Intern ■

16 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 SPEAKING OUT A Cry for Justice

BY LARRY W. ROEDER JR.

he story of Abu Ghraib had in the government. The trouble is just hit the news, complete Our failure to that what happened at Abu Ghraib is Twith its crisp, ugly pho- maintain a system not unique. Many administrations tographs, evidence of a system gone have held positions that went over the wrong. A lawyer who works in the of full civil rights line. But the events of today offer field of human rights and who knew I bold proof that the system itself has had been in the military asked me if for prisoners and broken. For example, evidence has such behavior was illegal in the Army. detainees only now come to light that many alleged Somewhat stunned by the question, I terrorists have died while in U.S. mil- said of course it was. I went on to encourages itary custody. In one particularly raise the conditions of the prisoners terrorism and notorious case, U.S. interrogators may being held at Guantanamo Bay, and have strangled an Iraqi general during argued that they needed lawyers and weakens our questioning. If true, that was murder, access to the Red Cross and other alliances. no matter how valuable the prisoner. human rights observers in order to As a result, we need a change in atti- avoid similar mistreatment, as well as tude; our failure to maintain a system to protect our reputation. My col- of full civil rights for prisoners and league replied that those prisoners detainees only encourages terrorism have no rights, since “they are (though evil never needs encourage- pirates.” only be one comment on this policy. ment) and weakens our alliances. If an attorney that works on Hooey! For a beacon such as our Let me be clear: I am not calling human rights issues doesn’t know nation to appear to be an advocate for a debate on the appropriateness of the proper answers to those basic for torture is to seriously undermine the war on terrorism, which I support, questions, then small wonder West our credibility as an advocate for or the Iraq conflict itself — both Virginia reservists were confused human rights. It also weakens our important topics upon which good, when aberrant intelligence officers ability to convince rogue nations to fair-minded people can disagree. Nor claimed that the rules of war join the civilized world. should this be an election-year fight. changed after 9/11 and therefore Such ignorance of what is appro- Rather, speaking as a professional civil their “high-value” prisoners had no priate — that America can’t be above servant, I am advocating the impor- rights. Of course, unknown to both the law or even appear to trying — tance of managing our involvement in of us was a memo from Justice which demonstrates the need for a long- such wars in the proper way, and urg- contends that the president isn’t overdue national discussion on the ing a recognition that even noble ends bound by laws prohibiting torture importance of civil rights in the war do not justify unethical means — cer- and that government agents who on terror. Many Americans are prob- tainly not those alleged to have been might torture prisoners at his direc- ably also confused. This dialogue proposed in the Justice Department tion can’t be prosecuted for doing so. could perhaps be conducted via a memo. The memo reportedly even says that televised discussion by a panel of legal the president, as commander-in- experts who would take questions Universal Principles chief, can approve torture as a from ordinary citizens in the audi- After 9/11, we were told the world method of interrogation. Clearly my ence. had changed, that al-Qaida was a new, colleague was therefore justified in This is not an attack on the current unprecedented threat. But that claim asking the question; but there can administration. It is an honor to serve overlooks the long history of terrorist

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 17 S PEAKING O UT

activities before 2001. What about the takeover of the U.S. embassy in Tehran in 1979, the slaughter of Israeli athletes at the 1972 Munich Olympics, or the activities of the Bader Meinhof, Red Army and Shining Path, to name just a few groups? The response to such savage people and events was, and must remain, to bolster our democratic, constitutional principles during war, not to take away rights. Each time our citizens lose rights in the struggle against terrorism or in any conflict, the terrorists win. But when we stand on the side of justice, even when attacked, we make a mockery of the evil that is al-Qaida and Saddam Hussein. One Pentagon adviser recently called the Geneva Conventions “quaint,” and went on to challenge the whole concept of observing basic human rights in wartime. It is hard to imagine an attitude more short-sight- ed and destructive to our nation’s image than dismissing the Universal Declaration of Human Rights and the International Covenant on Civil and Political Rights as irrelevant. Both treaties provide that no one shall be subjected to torture or cruel, inhuman or degrading treatment or punishment — period, no exceptions. You don’t have to be a lawyer to understand that. It has been said that the Defense Department tried another tack to defuse criticism by refusing to use the word “torture,” saying that term doesn’t apply to what went on in Abu Ghraib. Yet the Convention against Torture says: “‘Torture’ means any act by which severe pain or suffering, whether physical or mental, is intentionally inflicted on a person for such purposes as obtaining from him or a third person information or a confession, punishing him for an act he or a third person has committed or is suspected of having committed, or intimidating

18 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 S PEAKING O UT

In times of war, even democratic governments often pass laws they become ashamed of once the crisis has passed.

or coercing him or a third person, or for any reason based on discrimination of any kind, when such pain or suffering is inflicted by or at the insti- gation of or with the consent or acqui- escence of a public official or other person acting in an official capacity.” These acts are equally illegal in Iraq, Cuba or back in the U.S., whether in war or in peace. Every religious system and code of morality teaches that such conduct is immoral — i.e., kidnapping unproven suspects and taking them across the border for “rough treatment” — and experience shows that it is also ineffective or at least counterproductive. Yet now we are told that because of a few madmen, we must abandon the presumption of innocence when dealing with possible terrorists. Some may object that if a prisoner knows something crucial that might save the lives of many innocent people, then it is worth violating his rights to obtain that information by any means necessary, including torture —- the so- called “ticking bomb” justification. Under the same reasoning, hundreds of “enemy combatants” have been sent to brigs in Cuba, Afghanistan and Iraq, and even right here in the United States, for years at a time without any trial to determine guilt. We are also told that prisoners may be held for years without trial — with no opportunity to defend themselves.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 19 S PEAKING O UT

This violates the very meaning of the doubt — but tanks and cannon are our words and our deeds only weak- American Revolution. not police tools. Rather than put out ens our ability to speak out on behalf Yes, some, perhaps many, of these the word “dead or alive,” we should of victims of oppression and police- detainees may be “pirates,” as my col- have tried to bring them in alive, to be state brutality around the world — league believes. But they are still put on trial in The Hague for crimes even here at home. A moral approach human beings with rights we must against humanity, so the world and to justice isn’t always easy; but uneth- respect. Toward that end, while we Iraq would know the meaning of ical shortcuts, though they may have must protect secrets, trials should be American and international justice — quick positive returns, will in the end public, wherever possible. The vic- a justice superior to the savagery of destroy us. tims of tyranny in Iraq, Afghanistan Saddam’s Iraq. The Supreme Court has, I am and elsewhere deserve this, to say Every year, as we have done for relieved to note, now ruled that the nothing of the citizens of this country, decades now, the State Department prisoners at Guantanamo Bay and who must be convinced that publishes a comprehensive set of other “enemy combatants” are enti- American justice is open, fair and country human rights reports evaluat- tled to at least some of the basic due- swift. For when our justice is secret, ing how every government around the process rights required by the U.S. we are set up for abuses by the few world treats, or mistreats, its citizens. Constitution. That set of decisions is and can’t deflect lies. But when American officials engage not popular in many quarters, but it in some of the very practices we right- marks a welcome return to our coun- The Meaning of Justice ly denounce elsewhere, as happened try’s most fundamental values. This is also why the way Saddam in Iraq and may have happened in Our Founding Fathers launched a Hussein’s sons were killed was repug- Afghanistan and Cuba, those reports revolution that inspired the world, nant. The two were savages — no lose credibility. And that gap between proclaiming that all humans are creat-

20 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 S PEAKING O UT

ed equal, and are endowed with rights States almost went to war with France that no government can take away as xenophobia swept our country, from them, no matter where they live Any gap between our leading to passage of the Enemy Alien or what they believe. We have not Act and Alien and Sedition Acts per- fully lived up to that idea, but it has words and our deeds mitting the president to arrest, guided our nation for more than two imprison and deport “dangerous” centuries. My own great-grandfather, only weakens our ability immigrants on mere suspicion of Ernest Winter, like the ancestors of “treasonable or secret machinations many Journal readers, fought tyranny to speak out on behalf of against the government.” If such a in his homeland at great risk to him- deportee returned, he could be self before coming to this country. He victims of oppression imprisoned for as long as the presi- was a national labor politician who dent thought “the public safety may escaped the Kaiser’s secret police by and police-state require.” Sounds like how we treat so- crossing the German border in a hay called “enemy combatants,” doesn’t wagon under the threat of death. He brutality around it? And in an unsettling parallel with was smuggled to England and then today’s Patriot Act, the Sedition Act traveled to America, where he spent the world. made it unlawful to write, print, pub- the rest of his life working for the lish or speak “false, scandalous and downtrodden, alongside Samuel malicious” words about Congress or Gompers and other activists. the executive branch — in direct vio- In times of war, even democratic become ashamed of once the crisis lation of the First Amendment guar- governments often pass laws they has passed. In 1798, the United antee of freedom of expression.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 21 S PEAKING O UT

Though the Alien and Sedition setting an example for all to follow. Acts (but not the Enemy Alien Act, it Give the prisoners lawyers. Give is worth noting) were ultimately The Supreme Court them rights and a speedy, open, fair repealed, their spirit has resurfaced trial. No more deaths or torture dur- more than once during wartime. ruling that the ing interrogation. Such behavior de- Abraham Lincoln suspended the right means us and sets American soldiers of habeas corpus during the Civil War, prisoners at and civilians up for torture in the and thousands of Japanese-Americans future. were interned for years during World Guantanamo Bay As the Hindu poet Manu wrote in War II despite a complete lack of any 1200 BC: “Justice, being destroyed, evidence that they were disloyal or and elsewhere do have will destroy; being preserved, will pre- had harmed the United States in any serve; it must never, therefore, be vio- way. Rights were abrogated in World at least some rights lated. Beware, O Judge! Lest justice, War I as well, and internment camps being overturned, overturn both us from that conflict were used again in is not popular in many and thyself.” ■ World War II. But those decisions were soon correctly seen as aberra- quarters, but it was Larry Roeder, a Civil Service employ- tions, not as precedents. ee of the State Department, is the pol- We must return to our American the right call. icy adviser on disaster management in revolutionary roots, resisting the the Bureau of International Organi- temptation to weaken our system of zations. The views expressed herein rights when under stress, and instead are his only.

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

22 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 F OCUSON C OUNTERTERRORISM

THE BRAVE NEW WORLD OF VISA PROCESSING Phil Foster

THE EVENTS OF 9/11 AND STATE’S NEW PARTNERSHIP WITH THE DEPARTMENT OF HOMELAND SECURITY HAVE FOREVER ALTERED CONSULAR WORK.

BY SHAWN ZELLER

o be a State Department consular officer overseas is to have one of the most challenging of all Foreign Service positions. Besides its responsibility for issuing American passports and providing American citizen servicesT overseas, the Bureau of Consular Affairs handles visas. These CA officers — often the junior-most Foreign Service employees — have to play both the role of welcoming envoy to the millions of visitors who want to come to the United States each year to have fun, to do business, or to study, and the role of stern security guard against terrorists and criminals who would do America harm. The pressure is, and always has been, immense.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 23 F OCUS

Some officers have to interview Thankfully, after years in Most of all, it’s meant a rebal- upwards of 200 people a day, with ancing of priorities within the as little as two minutes to size up which consular work was Bureau of Consular Affairs. a prospective visitor. Always under pressure from the The Sept. 11, 2001, attacks underfunded and ignored, business and travel industry, col- ushered in perhaps the darkest leges and universities, and foreign period in the history of Consular it now has the attention of governments to move people Affairs, after it was revealed that through faster, CA has now made the 19 hijackers had entered the Congress. security paramount. And, thank- country on State Department- fully, after years in which consular issued visas. In 2002, Congress work was underfunded and almost stripped the State Department of its non-immi- ignored, it now has the attention of Congress. grant visa processing role, despite Secretary of State “It’s a challenging time, but also a great time of Colin Powell’s staunch opposition. While unsuccessful, opportunity. Everyone feels the work they are doing is the attempt was a crushing blow to State and to con- more important than ever,” says Janice Jacobs, deputy sular officers’ morale. assistant secretary of State for visa services. “Everyone In the end, the State Department held onto the visa has a healthy attitude.” processing function, for non-immigrants as well as immigrants. (Immigrant visa processing was not an An Uneasy Partnership issue in Congress: these visas are processed in coordi- An order for two distinct bureaucracies to work nation with Homeland Security’s Bureau of together efficiently on a complicated and sensitive mis- Citizenship and Immigration Services, the new incar- sion would invite difficulty even under optimal circum- nation of the now-defunct Immigration and stances. But the new partnership between CA and Naturalization Service, which has always held final DHS was the result of a bruising battle over the non- responsibility in this area.) Congress did shift author- immigrant visa function and, simultaneously, a whole- ity over non-immigrant visa policy, including applica- sale shakeup and reorganization of domestic security tion requirements, to the new Department of agencies into the new DHS entity. Still, both Assistant Homeland Security and gave DHS a final veto over Secretary of State for Consular Affairs Maura Harty individual visas. Last September, State and DHS and Homeland Security Under Secretary for Border signed a memorandum of understanding that divides and Transportation Security Asa Hutchinson have up responsibility for overseeing and carrying out visa praised each other’s leadership. processing, and the two agencies are working hard to Under the memorandum of understanding with streamline procedures and coordination. State allocating responsibility for oversight and execu- It is clear that the events of 9/11 and State’s new tion of the visa process, DHS now establishes most partnership with DHS have forever altered consular non-immigrant visa application policies, such as docu- work. “Visa issuance has changed completely,” says mentation requirements, conditions under which an Louise Crane, State Department vice president of the applicant may apply for a visa outside his or her home American Foreign Service Association. For the con- country, and instances when CA can waive the inter- sular officer, it’s meant more training on the front end, view requirement. And, as Hutchinson said at a hear- more rigorous interviewing on the job, and enhanced ing last year, Homeland Security now holds a “trump capabilities to identify terrorists through biometrics card” over nearly every decision to approve a visa. and ever-larger databases. For State, it’s also meant far State retains full authority over granting diplomatic greater cooperation with, and in some cases reliance visas, as well as any visa case that may affect foreign on, other government agencies. policy. For example, State will continue to be responsible for determining who is allowed to travel to the Shawn Zeller is a staff reporter for Government United Nations headquarters in New York City. State Executive magazine. will also identify legitimate exchange programs for visa

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purposes, and will continue to set visa validity periods officer at the port of entry scans the visa, takes another and fees. Jacobs says that, if necessary, the two depart- pair of fingerprints, and pulls up the photo submitted ment secretaries — Powell and Tom Ridge — are pre- by the applicant and fingerprints Consular Affairs col- pared to step in to resolve disputes. lected to make sure the person who applied for the visa Last year, DHS began deploying visa security offi- is the same one arriving in the United States. cers to consulates and embassies overseas, starting Through no fault of either State or DHS, another with Saudi Arabia. The Saudi deployments, now com- October deadline threatened to test the new partnership. plete, were the only ones explicitly mandated in the In 2002 Congress also passed legislation requiring all 27 of 2002 legislation creating the department. Still, DHS the visa-waiver countries to begin issuing passports with plans to expand the deployment of visa security offi- biometric information embedded within them by October cers to five more posts this year, and an additional five 2004. Because none of the countries are on track to do so the following year, pending adequate funding and and because of ongoing problems with the technology, recruitment of officers. The officers’ roles, as yet, are Powell and Ridge asked Congress to extend the deadline somewhat undefined. But Harty said last year that by two years. In early August, President Bush signed leg- “DHS personnel abroad will act as coordinators of islation granting only a one-year extention, to October source information involving threats to the United 2005. If not resolved, CA would have had to start pro- States, particularly focusing on terrorist threats ... cessing visa applications for travelers from visa-waiver They will provide training and intelligence support to countries, which include all of our closest European and our consular officers.” Asian allies — a potential logistical nightmare. Harty adds that DHS officers have been welcomed to the team, and that they and State’s consular workers No One Was Prepared are now operating efficiently together. The two depart- The post-9/11 transition hasn’t been easy. In 2002, ments are coordinating weekly on the new U.S. VISIT new security procedures overwhelmed an under- system, which is designed to track the entry and exit of staffed consular work force and led to long waits over- foreign travelers. And CA expects to meet its goal of seas. Even though visa applications dropped dramati- implementing new biometric checks during the visa cally after the terrorist attacks, backlogs grew because interview process by October. of the new procedures. For example, whereas CA had All visa applicants will have to allow a consular offi- often waived the requirement that visa applicants cer to take two fingerprints before a visa will be issued. show up in person for an interview, after the new rules The departments also worked together extensively to almost all applicants — except for children, the elder- implement the new Student and Exchange Visitor ly and diplomatic personnel — were required to Information System (SEVIS), which tracks foreign stu- undergo an interview. dents at U.S. colleges and universities. As a result of Also in the interest of security, CA dropped a 30- those efforts, a number of wanted criminals have been day time limit for comment that it had previously captured, and about 200 foreign students were turned imposed on other agencies, such as the FBI, that had back after it was discovered that they were not proper- asked to review a visa application. “None of the fed- ly enrolled in the school they claimed to be attending. eral agencies involved in the clearance process, The data collected during the biometric checks is including State, were technically equipped to handle run through the Consular Lookout and Support System the volume of data that began to come in to us,” (CLASS), which now contains nearly three times as Jacobs told the Senate Foreign Relations Committee many records as it did before 9/11 because of new last October. agency data-sharing requirements passed by Congress. The Government Accountability Office (formerly Visa applicants are then vetted against Homeland the General Accounting Office), Congress’ watchdog Security’s Automated Biometric Identification System, arm, followed up with a series of critical reports that which is known as IDENT. Any hits are sent to the said CA management was slow in defining the new FBI in Washington for further review. When a visitor security standards, communicating them to its work arrives in the United States, the Homeland Security force, and setting procedures for working with other

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agencies. At the same time, busi- One area where there is in years past is CA’s need for more ness and higher education groups personnel. After years of declin- complained of corporate execu- much less controversy than ing staffing, the bureau added 39 tives denied visas, business deals new full-time consular cone posi- lost, and students delayed in their in years past is CA’s need tions above replacement for attri- studies. tion in 2003, and another 80 this Jacobs makes no apologies for for more personnel. year. These new officers are CA’s focus on security, but says going through a rigorous training that she and Harty have reached course that includes four new ses- out to business and education groups and have tried to sions on counterterrorism, one of which is given by speed processing. Harty has asked all embassy con- Central Intelligence Agency personnel. One of the sular sections to educate visa applicants about what courses deals with visa fraud, while another focuses on they should expect, and how to navigate the new pro- interviewing skills. More experienced hands have also cedures. been required to undergo additional security training, And when security gaps have been revealed, State and Harty has taken steps to standardize consular pro- has taken steps to plug them. For example, in 2002 the cedures so that the processes will be identical world- GAO criticized CA for not taking action quickly enough wide. in warning domestic security agencies that a visa had been revoked — GAO said at the time that at least 30 Overcoming Misperceptions individuals were in the United States on revoked visas. Harty and Jacobs have also worked tirelessly to over- Now warnings go out in near-real time through State’s come the misperceptions that they believe nearly cost CLASS system and Homeland Security’s Interagency State the visa function. The concern in Congress then Border Inspection System (IBIS). Jacobs says that in was that “the State Department didn’t understand well 2003, word of every revocation reached DHS before enough the importance of border security,” Jacobs the visa-holder’s arrival. Similarly, when GAO report- recalls, a perception she rejects. Ironically, Congress ed that CA had sent visas to the FBI for security checks had shown little interest in or knowledge of consular with improper coding — causing long delays — the operations for years, except perhaps to lobby for visas agency invested $1 million to upgrade computer sys- requested by constituents on behalf of foreign relatives, tems. Now, when consular officers send sensitive and had cut the consular budget and rebuffed the applicant information to the FBI and other govern- agency’s efforts to upgrade. ment agencies for review, it travels over secure lines, Indeed, just a decade ago increased consular staffing rather than by telegram. was unthinkable. At that time, then-Assistant Secretary Critics have also questioned CA about whether the for Consular Affairs Mary Ryan had to beg Congress to two-fingerprint system used by U.S.-VISIT will be ade- allow the agency to retain the processing fees from visa quate over the long term. At a hearing in January, applicants to fund its operations. At that time, consular House Select Committee on Homeland Security mem- officers had no modern lookout system; instead they ber Norm Dicks, D-Wash., noted that the FBI uses a checked names against a microfiche list of ineligible 10-print system in its criminal database, and that two people that was usually outdated. Biometric checks prints are sometimes not enough to make a definitive were unheard of, and it was all the bureau could do to match. “I know there is very strong feeling, both in the get Congress to agree to provide funding to let it roll House and Senate, that two fingers are inadequate,” out machine-readable visa systems at consular posts. Dicks said. Jacobs responded that the National In 1994, Ryan succeeded in convincing Congress, for Institute of Standards and Technology has determined the first time, to allow Consular Affairs to keep some of that a two-print system is adequate for the time being, the fees that it collects from visa applicants and use the and if databases eventually return too many false posi- money to pay for infrastructure improvements. But tives, State can expand to an eight-print system. congressional restrictions on the funding only made it One area where there is much less controversy than possible to upgrade six posts with the machine-read-

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able systems each year. Even after 9/11, it took year, Ryan said she does not At the same time, the pressure believe the express program to speed processing of visas — an act of Congress to harmed national security. But she from business and education also recalled the circumstances at groups as well as Congress — was require the FBI to share the time of the program’s creation: relentless, eventually leading to “It was an extremely difficult peri- Ryan’s resignation. Just months data with CA. od. We were devastated by the before 9/11, in an effort to speed budget cuts. We were devastated processing in Saudi Arabia, CA set by the lack of junior officer intake.” up a program through which Saudis could submit visa And at the same time, federal law enforcement and application paperwork to travel agents, who would intelligence agencies were reluctant to share their then forward the information for adjudication by con- lookout data. Ryan said she was outraged to learn, sular affairs. Many of the applicants were not required after the attacks, that the FBI and CIA had informa- to show up at a consular post for an interview. Similar tion on two of the 9/11 hijackers — Khalid al-Midhar programs already existed worldwide, but in Saudi and Nawaf al-Hazmi — and had never shared that Arabia the program was given the unfortunate name of information with CA. The reason they hadn’t: State is “Visa Express.” In 2002, under congressional pres- not a law enforcement agency. “I was outraged. I was sure, Ryan stepped down after the program generated furious. I’m still angry about it,” she says. Even after controversy. 9/11, it took an act of Congress to require the FBI to In testimony before the 9/11 Commission early this share data with CA.

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Some Things Don’t Change The group recommended that visas be granted to One thing that hasn’t changed since 9/11 is the lob- students and scholars for longer periods of time to bying efforts of travel and business industry groups, as allow them to complete a course of study without hav- well as colleges and universities, to encourage consular ing to apply for a visa renewal. It also said that students affairs to lower barriers to travelers. In June, a coali- should be allowed to begin the process before taking tion of business groups including the Aerospace temporary trips outside the United States, and that CA Industries Association, the American Council on should provide applicants with a means of checking International Personnel and the National Foreign their status. Visa applicants waiting more than 30 days Trade Council, issued a report saying that delays in visa should be moved to the front of the waiting list, the processing have cost U.S. exporters more than $30 bil- group said. lion since 2002. Of the 734 companies that responded to a survey commissioned by the coalition, 73 percent A Delicate Balance said they had experienced problems in the processing The primary cause of delays in student visa process- of business travel visas, including unexpected delays ing, according to the GAO, is the increased use of Visas and denials; 60 percent said they had paid a price for Mantis checks, instituted after the 9/11 attacks. Students processing delays, including lost sales and increased and scholars who plan to conduct research in a number costs associated with moving personnel abroad to avoid of scientific disciplines deemed important to national travel problems; and 51 percent said that the problem security must undergo these additional checks. In the was getting worse, not better. past, the FBI had 30 days to process the requests from “When legitimate foreign business executives and Consular Affairs, but now the FBI must sign off on all vital international customers cannot enter the U.S. to approved visas no matter how long it takes. That’s caused conduct normal business, it is our companies, our some headaches. The GAO found, for example, that workers, our economy, and our international relations improperly formatted requests had not gotten to the FBI that pay the price,” said National Foreign Trade and delayed processing in some cases for weeks. Council President Bill Reinsch in a statement Based on a random sample of Visas Mantis cases announcing the survey. The report recommended that between April and June 2003, the GAO found that it reputable, well-known businesses be granted “gold took an average of 67 days for the security check to be card” status, allowing their business travelers access to processed. GAO auditors visited consular posts in expedited procedures; and that CA grant visas allowing China, India and Russia, and found that consular offi- business travelers to travel to the United States multi- cers were often confused about when to apply Visas ple times without renewing. Mantis checks. Nor did they receive consistent or Theresa Brown, executive director of Americans for timely feedback on whether they were providing Better Borders, a business advocacy group affiliated enough information in the security review requests with the U.S. Chamber of Commerce, says that foreign they sent back to Washington. In some cases, appli- business travelers have been offended by the finger- cants routinely waited two to three weeks just for an print requirement. interview, with some cooling their heels for more than Meanwhile, in May, a group of 25 science and higher three months for a response. education organizations, including the American But now, Jacobs says, CA’s $1 million investment in Association for the Advancement of Science, the National better technology is paying off with fewer errors in Academy of Sciences, and the American Council on security review requests sent to the FBI, and the new Education, sent a letter to the White House, the FBI, the standard operating procedures implemented by Harty State Department, and the Department of Homeland have cleared up confusion over how to process Visas Security, arguing that the more stringent visa process was Mantis cases. A newly established team within CA in interfering with legitimate research and scholarship. “The Washington ensures that applications flow more U.S. cannot hope to maintain its present scientific and smoothly. Now, Jacobs says, 80 percent of all Visas economic leadership position if it becomes isolated from Mantis checks are conducted within 30 days. the rest of the world,” the letter said. The statistics, though, still bear out some of the

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business and education groups’ A coalition of business executives and skilled and unskilled concerns. Foreign travel to the temporary workers, will have to go to United States dipped by about 30 groups says that delays U.S. embassies abroad where they percent after the 9/11 attacks and is can be fingerprinted and inter- only now recovering. At the same in visa processing have viewed. The new policy could come time, Consular Affairs is definitely under fire from companies who may taking a tougher line with students cost U.S. exporters have to pay for their employees to go and scholars. Visas Mantis checks abroad to be processed, but, accord- have tripled since 2001 to more more than $30 billion ing to State Department spokesman than 20,000 a year. In total, CA Richard Boucher, there are no plans granted 474,000 student visas in since 2002. to create an office in the U.S. to han- 2003, down from 560,000 in 2001; dle the renewals. “We want to do and it approved only 74 percent of interviews. We want to do finger- applications, compared to 80 percent before 9/11. prints. We’re best set up to do that overseas,” he says. Procedures are being streamlined for other categories Ultimately, Jacobs says, “Consular Affairs has always of visa-holders as well. In late June, the State had to balance the two goals: one is facilitating legitimate Department announced that as of July 16 it would no travel; the other is protection of U.S. borders.” Jacobs is longer accept applications for renewal of “E,” “H,” “I,” the first to admit that CA is still working on finding the “O,” “L,” and “P” visas by mail. Holders of these visas, perfect balance, but she believes just as firmly that the who include entertainers, athletes, journalists, investors, agency has come a long way. ■

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ARE WE LOSING THE WAR ON TERRORISM? Phil Foster

THREE YEARS AFTER THE 9/11 ATTACKS, THE THREAT FROM TERRORISM IS GROWING, NOT RECEDING. IT IS TIME FOR A REAPPRAISAL OF OUR STRATEGY.

BY PHILIP C. WILCOX JR.

he “war on terrorism,” the centerpiece of George W. Bush’s presidency, is going badly. Incidents of worldwide terrorism have actually increased since Sept. 11, 2001. Islamic terrorists have become an even more for- midableT enemy. The war in Iraq, based in part on the false premise that Saddam Hussein posed a terrorist threat to the U.S., has squandered international sympathy won after 9/11, shortchanged U.S. counterterrorism efforts in Afghanistan and elsewhere, and provoked rising anger in the Arab and Muslim world. Worse yet, the war, seen by Muslims worldwide as a war against Islam, has created a new hotbed of anti-American terrorism and has swelled the ranks of radical jihadis throughout the world.

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Excessive reliance on the military The key to successful in the last 34 years, now contains cor- to fight terror, disdain for diplomacy, rected data indicating that 625 peo- and assertive unilateralism have also counterterrorism is ple died from acts of international provoked strong anti-American hos- terrorism in 2003. This was more tility worldwide. And the Bush eliminating popular than in any year since 1998, except administration’s unprecedented tilt for 2001 when the 9/11 attacks toward the policies of the right-wing support for terrorists and occurred. The corrected Patterns Sharon government in Israel has also recorded the highest number of increased Arab and Muslim anger their ideology wherever “significant terrorist incidents” in against the U.S. 2003 than in any year since data col- At home and abroad, the Bush they operate. lection began 28 years ago. These administration has used the threat of numbers suggest that terrorists are terrorism to justify radical and unjus- increasingly on the offensive. tified departures from the rule of law. And, while our domestic defenses against renewed attacks in the U.S. Needed: A Clearer Understanding have been strengthened, we remain highly vulnerable. of Terrorism These dangerous consequences are a result of the vic- After 9/11, the Bush administration conflated the tory of ideology over clear analysis and experience. A flood problems of terrorism by al-Qaida, hostile authoritarian of commentary by policy experts, journalists, and former regimes, and weapons of mass destruction thought to be officials from across the political spectrum basically agrees possessed by these regimes into a lurid but intellectually that America’s war on terrorism has gone wrong and that it incoherent “axis of evil.” They believed that for moral and is time for a reappraisal. Toward that end, the next admin- strategic reasons, the U.S. had a mission to rid the world istration, Republican or Democratic, should consider the of terrorist-supporting authoritarian regimes and to following points in reshaping American policy. replace them with pro-U.S. democracies. They assumed this could be done by using military power and de-empha- The Threat Is Growing sizing traditional diplomacy and alliances. They believed The U.S. has so far avoided another major terrorist that the Clinton administration’s reliance on law enforce- attack since 9/11, thanks to improved intelligence and ment, intelligence and diplomacy to fight terrorism had security measures, although there are frequent warnings weakened American deterrence and emboldened Osama that new attacks remain a threat. But terrorism world- bin Laden and other terrorists. A more robust use of mil- wide has grown over the past three years, with spectacu- itary force to destroy terrorists and their state sponsors lar, highly lethal terrorist events in Spain, North Africa, was their chosen remedy. The war in Afghanistan that Turkey, the Middle East, and in South and Southeast Asia. overthrew the Taliban regime was the opening round. Growing terrorism in Iraq, which was not previously a But the war to overthrow Saddam Hussein, launched at center of such activity, has become an unintended the expense of completing the job in Afghanistan and con- (although widely predicted) result of the American mili- centrating on terrorism, worldwide, was the main event. tary presence. The administration’s first mistake was to assume Measuring terrorism trends with statistics is admitted- that terrorists are a discrete group of “evildoers,” who ly difficult and not always reliable. The Department of can be identified, tracked down and killed or arrested, State’s Patterns of Global Terrorism – 2003, after mistak- thus eliminating terrorism and “winning the war.” enly reporting that terrorist attacks were at the lowest ebb Although al-Qaida was an organized group before 9/11, it was always part of a larger and diffuse network Ambassador Philip C. Wilcox Jr. was a Foreign Service of extreme Islamists who share an ideology of hatred officer from 1966 to 1997. Among his many assign- for the U.S. and the West as well as opposition to ments, he was ambassador-at-large for counterterror- mainstream Islam. This ideology springs from and ism from 1993 to 1997. He is currently president of the feeds on the experience of colonialism, and patholo- Foundation for Middle East Peace. gies of weakness, humiliation, revenge, martyrdom,

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and despair over political repression and economic acceptable and that terrorists should be treated as crimi- stagnation. nals. This principle was gaining wide international sup- Since terrorism is a tactic serving an ideology, defeat- port as recently as the 1990s, but public opinion in the ing it requires targeting the ideology that nourishes it Muslim world now blurs the distinction between inno- through political, economic and psychological means. cents killed by terrorists and innocent “collateral casual- Unless the roots of the movement are targeted, the under- ties” killed by American forces. This plays into the hands lying grievances will continue to produce new terrorists, of the terrorists, and the U.S. is blamed for the violence, even as others are killed or captured. not the terrorists. The Bush administration also mistakenly assumed that Terrorists understand this dynamic better than we do. terrorists could not carry out major attacks like 9/11 with- They use tactics to expose civilians to U.S. firepower, and out the help of states. This fallacy produced the tenacious they enhance their support and legitimacy by posturing as view, absent any evidence, that Saddam Hussein was “warriors for Islam” and “freedom fighters.” Arab media, behind the 9/11 attacks. Today’s Islamist terrorists do not like Al-Jazeera, are all too willing to exploit civilian deaths depend on state sponsorship, which has declined sharply caused by U.S. forces to inflame popular emotions and in the last decade, as states have recognized the high risk create sympathy for the terrorists. All this undermines the of Western sanctions and the threat terrorism poses to principle that all terrorism, whatever the motivation, their own regimes. should be beyond the pale. Since military force is often ineffective in eliminating Limited Utility and Backlash Effects of terrorists and tends to strengthen their ideological cohe- Military Force sion and popular appeal, we should use it only in excep- The Bush administration’s lack of understanding that tional circumstances. For example, force might be neces- ideology is the ultimate target in combating terrorism, and sary in the rare case of an imminent terrorist attack that that terrorists usually do not depend on states that can be cannot be preempted by diplomatic, intelligence or law attacked by military force, has led to exaggerated belief in enforcement measures, or in the equally rare case of an the use of military power. While armed intervention act of state-sponsored terror for which there is no other accomplished the worthy goal of ridding Afghanistan of effective response. the hated Taliban regime, that was a uniquely easy target. By contrast, U.S forces have not captured Osama bin Good Intelligence Requires Expert, Laden, and the lack of a sustained follow-through to that Independent Analysis effort because of the Iraq war increases the odds that The 9/11 Commission Report revealed many weak- Afghanistan will once again become a haven for terrorists. nesses in U.S. intelligence. At the top of the list for reform That example should show us how difficult it is for are improved collection of terrorism intelligence, better American military forces to capture highly mobile and intelligence analysis (untainted by political pressure) and clandestine terrorists. Iraq, where U.S. forces are fighting greatly improved sharing of intelligence among agencies. a murky combination of insurgents and terrorists, thus far However, expectations of vastly improved collection of without much success, confirms this lesson. Elsewhere in human intelligence that will invariably provide advance the world, terrorists exist clandestinely in many states, warning of terrorist attacks are unrealistic. So is the often in urban areas, where they are usually beyond the perennial claim that the U.S. could use covert action reach of U.S. military force. much more effectively. Of course we need to try harder, Moreover, the use of conventional military force and but there are limits to our ability to penetrate terrorist net- high-performance weapons against terrorists and insur- works with human agents, and to obtain tactical warning gents, especially in urban environments, carries a high risk of impending terrorist attacks. of civilian casualties and backlash. Anger over heavy civil- The most cost-effective investment in better intelli- ian casualties in the war in Iraq has already intensified gence would be funds for greater area and language exper- anti-U.S. emotions in the Arab and Muslim world. tise, not only for collectors of secret intelligence and ana- Civilian deaths have also weakened support for the lysts, but for State’s Foreign Service officers. Many ana- principle that terrorism against non-combatants is never lysts believe that Foreign Service reporting is the best sin-

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gle official source of intelligence The 9/11 Commission terrorism is actually a war against about the political dynamics of for- Islam. eign societies. Budgets for lan- Report revealed many The U.S. has struck heavy blows guage and reporting have improved against the operational effective- after a long decline, but these skills weaknesses in U.S. ness of bin Laden’s original al-Qaida deserve greater resources. No less network. But a wider Jihadi move- important, intelligence analysts and intelligence. But the most ment, ideologically linked to al- Foreign Service reporting officers Qaida, but operationally autono- must not be inhibited by pressure cost-effective investment mous, is growing. This movement, to report what their political bosses fueled by growing Muslim resent- in Washington want to hear. Such would be funds for greater ment over the perception that constraints are heaviest when ideol- Islam itself is under attack from ogy and demands for conformity area and language expertise. America and the West, constitutes trump open-mindedness and the main terrorist threat today. Its respect for experience among poli- cadres are dispersed, highly mobile, cy-makers. sophisticated, and located worldwide. The most respected Of course, changes in the structure of the intelligence terrorism experts, inside and outside the U.S. government, community are needed to eliminate deplorable failures in regard this diffuse network as more formidable and intelligence sharing and coordination, some of which con- implacable than the original al-Qaida. tributed to 9/11. But any reform must protect competition and diversity among intelligence agencies, which help Weakening the Rule of Law guard against inevitable pressure for homogenized and The Bush administration’s view that international legal “politically correct” analysis. limits on unprovoked war and the treatment of detained terrorist suspects do not bind the U.S. is a major setback Losing the Hearts and Minds of Muslims for international efforts to strengthen international law as The key to successful counterterrorism is eliminating a tool against terrorism. In fact, strengthening a rule- popular support for terrorists and their ideology wherever based international legal regime against terrorism and they operate, as well as winning full cooperation from for- international compliance with this regime are critically eign governments. There was widespread sympathy for important. The general indifference, if not hostility, of the the U.S. among Muslims and Arabs, as in most of the Bush administration toward international law weakens the world, following the tragedy of 9/11. But careless rhetoric fabric of global anti-terrorism law and cooperation from Washington about serial wars against other Muslim painstakingly stitched together over many years. states suspect of terrorist sympathies, a sharp tilt toward The sordid practice of torture by American forces Sharon’s policies in the Israeli-Palestinian conflict, and the against suspects in Iraq and the indeterminate detention war in Iraq have squandered this good will and stirred an of “enemy combatants” at Guantanamo Bay are egregious unprecedented wave of anti-American hostility through- examples of this disregard for international law. out the Arab and Muslim world. Fortunately, the Supreme Court has overturned the Bush The war in Iraq has created a new motivation for ter- administration’s assertion of unlimited executive power to rorism by resurrecting powerful memories of colonialism, detain both certain U.S. citizens and foreign suspects domination and defeat by the non-Muslim West, just as without due process. Such practices put American troops Soviet troops in Afghanistan did in the 1980s. Today, the at risk, and undermine the work of generations to adopt collapse of the WMD rationale for the war, the lack of evi- rules that make armed conflict more humane. All this dence that Saddam was behind 9/11, and the belief, which plays into the hands of terrorists and other criminal ele- the administration has not tried to rebut, that the U.S. ments that disdain civilized conduct and celebrate force wants oil preferences and military bases in Iraq, have all and violence. compounded Arab and Muslim anger. Polls in the region The Patriot Act, hastily enacted after 9/11, treads on show a widespread perception that the U.S. war against traditionally protected rights against search and surveil-

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lance without a warrant, and allows Arab media, like Al- abroad, we need a far more ambi- the secret detention of aliens without tious parallel strategy to undermine due process. The U.S. needs extraor- Jazeera, are all too willing terrorism at its roots. We must find dinary legal means to pre-empt the better ways to reduce the appeal of rare case of the “ticking bomb,” but to exploit civilian deaths extremist ideologies that breed ter- the Patriot Act goes too far. rorism so that new terrorists will not Of course, terrorism is a serious caused by U.S. forces to emerge and that those who remain at threat to our security, and potential large can be isolated, exposed and terrorist access to materials for con- inflame popular emotions apprehended. Having identified the structing and deploying weapons of ideological roots of terrorism, we can mass destruction increases that risk. and create sympathy for then bring to bear diplomatic, eco- But while we must have strong laws nomic, educational and other to protect ourselves, we must also the terrorists. resources. protect liberty. If we sacrifice liberty It is beyond the power of the U.S. too readily to guard against remote alone to eliminate or even rapidly terrorist contingencies, we lose far more than we gain and change the lack of democracy and human rights, the eco- ultimately weaken our security. Our leaders should use nomic failure, the ignorance, and the historic and cultural common sense and remember the lesson of history that “if traumas that have fed terrorism in the Arab and Muslim anything goes, everything is soon gone.” world. But we need to devote far greater wisdom and resources to the task than we have up to now. President Toward a More Effective Strategy Bush’s U.S.-Middle East Partnership Initiative is a good Describing our post-9/11 efforts as a “war” against ter- beginning, but until the war in Iraq and the Israeli- rorism is understandable, given the gravity of the threat Palestinian conflict are resolved, it is unlikely to gain much and the need for a determined response. But “wars” are traction. A new strategy should also mobilize the experi- eventually won or lost, and terrorism cannot be eliminat- ence of European states and their resources. This will ed or protected against entirely. Nevertheless, we can require a return to multilateralism and healing wounded and must reduce the threat. relations with our traditional allies. The Bush administration has made important progress We will also need to communicate more effectively in domestic security, especially in air travel. Border con- with the people in the Arab and Muslim worlds to restore trols have also been improved. But heavy-handed, pro- their friendship and confidence in American goals. tracted vetting of visa requests, especially those for visitors Unless these people understand and trust our policies, from Muslim countries, has discouraged visits by students, they will not join us against the terrorists and abandon the tourists and businesspeople. We pay a huge cost in ill will false notion that the U.S. is at war with Islam. Thus far, and contacts lost for this. our educational and information programs have been We must recognize, however, that the goal of complete pathetically inadequate to the challenge. homeland security is unattainable, given the infinite range This work will take decades, and the legacy of past fail- of targets in the U.S., and the costs in disruption and loss ures will not be overcome soon. In the shorter term, the of freedom that would be required. This makes it all the most important policy initiative the U.S. could take would more imperative that we broaden our strategy. be to renew American leadership in the search for peace Because of the limited utility of military force and its between Israelis and Palestinians. Nothing has done so disadvantages in combating terrorism, we must continue much to anger and alienate Arabs and Muslims as the per- to rely most heavily on the traditional tools of intelligence, ception that the U.S. favors the policies of settlement law enforcement and diplomacy to stop terrorists and expansion and domination of the Palestinians pursued by apprehend them. The report of the 9/11 Commission Israeli Prime Minister Ariel Sharon, and is indifferent or points the way toward strengthening these methods. hostile toward Palestinian rights for freedom in a viable But given the limitations of these tools for pre-empting state of their own. Bin Laden and other terrorists have terrorism, and our inherent vulnerabilities at home and exploited this issue brilliantly. But even without their

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manipulation, the issue’s importance cannot be overesti- security policy. Yet the Bush administration’s over- mated. Unless the U.S. reverses its current passive and whelming focus on terrorism, at the cost of an estimat- sometimes partisan policy and turns to vigorous, even- ed $400 billion since 9/11, including the cost of the war handed intervention in the Israeli-Palestinian conflict, it in Iraq, has deprived these other critical issues of the cannot regain the respect and confidence it needs in Arab diplomatic attention and resources they need. and Muslim states to reduce and contain the threat of rad- Perhaps our worst failing in facing the broad problems ical Islamic terrorism. of conflict and political violence abroad is neglect of what retired Ambassador Ronald Spiers describes elsewhere in Terrorism Is Not the Only this issue (see p. 43) as the “swamp of poverty and igno- National Security Challenge rance which spawns and sustains terrorism.” One final observation. Without diminishing the Although we are the world’s richest nation, we are dead threat of terrorism, we must also recognize that the last among developed nations in our per-capita contribu- U.S. also confronts other dangerous national security tion to foreign aid, giving less than one-tenth of one per- challenges: non-proliferation, international economic cent of our GDP. growth and stability, denial of human rights and By making the “war on terrorism” the defining princi- democracy, environmental degradation, HIV/AIDS ple of U.S. policy, the Bush administration has neglected and other epidemic diseases, drugs and crime also other foreign policy needs and tended to obscure the pos- affect the well-being of Americans and the world. itive goals that have sustained and distinguished American While less dramatic and frightening than terrorism, leadership in the past. these problems also demand attention in our national This must change. ■

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FIGHTING TERRORISM IN EAST AFRICA AND THE HORN Phil Foster

SIX YEARS AFTER THE BOMBINGS OF OUR EMBASSIES IN NAIROBI AND DAR ES SALAAM, U.S. COUNTERTERRORISM EFFORTS IN THE REGION DO NOT YET MEASURE UP TO THE THREAT.

BY DAVID H. SHINN

efore Sept. 11, 2001, most Americans paid little attention to terrorism, particularly in the Third World. Since then, though the Middle East and Central Asia have figured most prominently in the war on terrorism,B Africa is increasingly coming into focus as an important battleground. This is especially true of East Africa (Kenya, Uganda and Tanzania) and the Horn of Africa (Sudan, Ethiopia, Eritrea, Djibouti and Somalia), where the practice of targeting Americans for political violence has deep roots. The Black September organization assassinated the American ambassador to Sudan, Cleo A. Noel Jr., and his deputy

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chief of mission, George Curtis The components of the they rarely went to Kenya. In sym- Moore, in 1973. And following the pathy for Kenyans killed in the U.S. air attack against Libya in counterterrorism bombing and in appreciation for 1986, Libyan terrorists retaliated Kenya’s close counterterrorism by severely wounding an American program for East Africa cooperation with the U.S. follow- embassy communications techni- ing the attack, significant numbers cian, William Caldwell, also in and the Horn are good of senior American officials trav- Khartoum. There have been a eled to Nairobi. President Moi number of other terrorist attacks as far as they go. even received a long-desired invi- dating back more than two decades tation to the White House before against Western and Israeli inter- But the focus is not he stepped down at the end of ests in this dangerous region. 2002. Tanzania also experienced But it took the coordinated long-term enough. an increase in high-level American bombings by al-Qaida in 1998 of attention. the American embassies in Nairobi and Dar es Salaam to make clear the full scope of the A Focal Point of Terrorism organization’s menace. While the attacks killed far Unfortunately, however, U.S. counterterrorism poli- more Kenyans and Tanzanians than Americans, 12 cy perspectives and programs in the region do not yet Americans perished in Nairobi and many were injured measure up to the threat Islamic fundamentalism and in both capitals. (American and Ugandan authorities al-Qaida activity jointly pose. There are several reasons foiled another attack planned against the U.S. embassy for this. Most of the countries have experienced severe in Kampala.) internal conflict, which is frequently supported by Those bombings were, in many respects, even more neighbors, either directly or via dissident groups — of a seminal event than the 9/11 attacks for the which tends to lead to tit-for-tat support of an opposi- American war on terrorism in East Africa and the tion group in the offending state. Examples of this Horn. The State Department responded by building phenomenon range from the long-standing civil war in new fortified embassies in both capitals, and in Sudan and the collapse of any central authority in Kampala, with considerably more setback from the Somalia to Tanzanian support for the overthrow of the street. Other embassies in the region enhanced their Idi Amin regime in Uganda, Somalia’s invasion of physical security, as well. Ethiopia in the late 1970s, Eritrea’s war of indepen- There were also policy ramifications. Prior to the dence, and the Ethiopian-Eritrean conflict. embassy bombings, the U.S. had a cool relationship Such instability prevents most governments in the with Kenyan President Daniel arap Moi as a result of region from exercising full control over their territory, concerns over corruption and the pace of democratiza- providing terrorists easy access to weapons. Somalia tion. When senior American officials visited Africa, remains a vacuum and is prey to any terrorist with money and a plan. Although Sudan appears to be near- Ambassador David Shinn was a Foreign Service officer ing the end of a civil war that dates back to 1983, it now from 1964 to 2000, serving as ambassador to Burkina faces a new and worsening conflict in the Darfur Faso and Ethiopia, among many other postings. He region, along the border with Chad. Uganda has been was also State Department coordinator for Somalia unable to eliminate the Lord’s Resistance Army in the during the American intervention there. Now an northern part of the country. The Somali-inhabited adjunct professor at The George Washington Ogaden in southeastern Ethiopia experiences regular University (from which he earned a Ph.D. in political security incidents. And the Eritrean Islamic Jihad science in 1980), Amb. Shinn’s research interests Movement seems to have refocused attention against include Africa (particularly East Africa and the Horn), Eritrea, operating out of Sudan. terrorism, Islamic fundamentalism, conflict situations Although the groups behind these attacks are not and HIV/AIDS. normally considered international terrorists, they

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engage in terrorist tactics and some, such as the EIJM, standing improved from past years, tied with Indonesia at are believed to have links with al-Qaida. Recent 122. (Transparency International did not rank Eritrea, actions by these groups illustrate conclusively that the Djibouti or Somalia.) security and intelligence services in all of the countries The fact that East Africa and the Horn are home to are underfunded and ill-equipped to counter terrorist some of the poorest countries in the world, with high tactics by local organizations or international terrorists. levels of social injustice and political alienation, is fre- Geography also plays an important role. Most of quently cited as a reason why the region has become a these states are located near, and have longstanding ties breeding ground for terrorism. But not everyone to, the Arabian Peninsula, the source of many of today’s agrees that poverty is closely linked to international ter- Islamic militants. It is easy to move between the rorism. State Department Coordinator for Counter- Persian Gulf states and this region by air and sea. The terrorism Cofer Black, during a May digital videocon- governments are virtually incapable of monitoring the ference with journalists and government officials in lengthy coastline from Eritrea to Tanzania. The land Dar es Salaam and Addis Ababa, downplayed the link borders between all of the states are unusually porous, between terrorism and poverty. He cited the Saudis as well. who took part in the 9/11 attacks on the U.S., pointing Further, the region sits on a religious fault line of out that they tended to come from middle-class fami- Christianity, Islam and traditional African beliefs. All lies and had access to a university education. He con- eight of the countries are either predominantly Muslim cluded that they “turned into terrorists because they or have important Muslim minorities. Sudan, Djibouti fell under the influence of the wrong people and and Somalia, including self-declared independent became seriously misguided.” Somaliland, are heavily Muslim. Ethiopia and Eritrea Yet while this may be true, it misses the point, at are about half Islamic. Kenya, Uganda and Tanzania least as far as East Africa and the Horn are concerned. contain significant Muslim minorities, some of whose The environment created by poverty, social injustice members have become radicalized in recent years. It and political alienation enhances the ability of religious is true that Sufism, which tends to resist the ideas of extremists to export their philosophy and of terrorists Islamic fundamentalists, remains strong throughout to find local support for their nefarious acts. Black the region. This traditionally moderate form of Islam went on to say that instead of blaming economic condi- has not always been sufficient, however, to overcome tions, “we need to encourage moderation” and follow the appeal of fundamentalism, especially when it is guidelines “our mothers and fathers taught us.” Good backed with funds from Saudi Arabia and the Gulf luck! States. As a result, nearly all of the international ter- To be sure, poverty may not be a direct cause of terrorism in the region, as opposed to local groups that rorism. To dismiss its role, however, is misguided. use terrorist tactics, has ties to extremist Islamic ele- Together with abysmally low wages for immigration ments. and security personnel, poverty significantly increases the prospect of widespread corruption that, in turn, Poverty, Social Injustice and creates a climate amenable to terrorism. Even the Political Alienation President’s National Security Strategy issued in Finally, the region’s endemic corruption is another September 2002 commented that although poverty factor that attracts terrorists, allowing them to buy off does not make poor people into terrorists, “poverty, immigration and local security officials. Transparency weak institutions and corruption can make weak states International surveyed 133 countries in 2003 as part of its vulnerable to terrorist networks and drug cartels with- corruption perceptions index. Five of the eight countries in their borders.” In a recent issue of Foreign Affairs located in the region ranked poorly. Ethiopia and Senator Chuck Hagel, R-Neb., argued that terrorism Tanzania received the best ranking of the five, tied with finds sanctuary in “the misery of endemic poverty and several other countries at the 92nd position. Sudan tied despair.” He added that “although poverty and despair with a number of countries for position 106, while do not ‘cause’ terrorism, they provide a fertile environ- Uganda tied with others for 113. Kenya, although its ment for it to prosper.” In East Africa and the Horn,

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and probably much of the rest of the world, it is time to International Islamic Relief Organization. These chari- accept the important role that poverty plays and put in ties have been active in East Africa and the Horn for place long-term measures to deal with it. years, building mosques and implementing useful social programs. But some of their branches have also funneled Financing Terrorism money to al-Qaida and associated terrorist organizations, Charities sponsored by Saudi Arabia and several and the U.S. has accused the former director of al- other Persian Gulf states have probably financed most Haramain in Tanzania of planning the 1998 attacks on the of the international terrorist activity in the region, with embassies in Dar es Salaam and Nairobi. funds coming both from private individuals and gov- After the 9/11 attacks, Washington stepped up pres- ernments. In the case of Saudi Arabia, and to a lesser sure on Saudi Arabia to control these charities. In extent Qatar, the charities are closely linked to efforts 2002, the two countries jointly designated the Somali to promote the fundamentalist Sunni Islamic creed branch of al-Haramain as an organization that had sup- known popularly as Wahhabism. Toward that end, in ported terrorist groups such as al-Qaida and the 1962 Saudi Arabia created the state-financed Muslim Somali-based al-Ittihad al-Islamiya. Early in 2004 both World League to underwrite mosques, schools, countries notified the U.N. Sanctions Committee that libraries, hospitals and clinics around the world. Saudi the branches of al-Haramain in Kenya and Tanzania Arabia’s grand mufti, its highest religious authority, provide financial, material and logistical support to al- serves as the organization’s president. Qaida and other terrorist organizations. They asked The League encompasses a wide range of entities, Kenya and Tanzania to seize the assets of both branch- including the al-Haramain Islamic Foundation and the es. At the request of the U.S. and Saudi Arabia, the

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government of Tanzania recently Charities sponsored by rorism and make progress on end- deported the two top al-Haramain ing the long-standing civil war in officials and closed the office. In Saudi Arabia and other Sudan. President Bush named for- mid-2004 Saudi Arabia and the mer Missouri Senator John U.S. designated the al-Haramain Persian Gulf states have Danforth as his special envoy for branch in Ethiopia as a financier Sudan in an effort to end the civil of terrorism. At the same time, probably financed most of war. This appointment and policy under pressure from the U.S., not only neutralized the American Saudi Arabia outlined plans to dis- the international terrorist domestic constituency that wanted mantle its network of international strong action against Sudan, but charities and place their assets activity in the region. turned Sudan into an important ally under a new Saudi National in the war against terrorism. Commission for Relief and By all accounts, the regime’s Charity. It remains to be seen if cooperation on counterterrorism this crackdown by Saudi Arabia will put an end to the has been excellent. In addition, it and the Sudan People’s diversion of charitable donations to terrorists. Liberation Movement, under pressure from the U.S. and others, have also made enormous progress in ending the A Major Change in Policy toward Sudan civil war. Consequently, Secretary Powell announced in U.S. relations with Sudan began a downward spiral May that the U.S. had removed Sudan from a blacklist of after an Islamic government entrenched itself in power in countries deemed not to be cooperating fully on coun- the early 1990s and stepped up the war against southern- terterrorism. There is still in place a maze of American ers. Sudan opened the door slightly in 1996, however, sanctions, including the listing of Sudan as a “state spon- when it responded positively to a U.S. request to expel sor” of terrorism, but this was the first step in unraveling Osama bin Laden, who had lived in Khartoum since U.S. sanctions against Sudan. The policy change proba- 1991. This offered the possibility for improved relations, bly would not have occurred except for the traumatic but there was no follow-through by the Clinton adminis- events of 9/11. However, a new crisis in the Darfur tration. The nadir in the relationship then occurred in region in western Sudan threatens to set back significant- 1998 following the bombing of the embassies in Nairobi ly the improvement in relations. and Dar es Salaam, when the U.S. launched cruise missiles against a pharmaceutical factory in Khartoum. The Quandary over Somalia U.S. linked the factory to the production of chemical American and allied forces intervened massively in weapons based on a soil sample containing a precursor Somalia late in 1992 to end a famine. They stopped the for the production of weapons found outside the factory. famine, and all U.S. troops left Somalia by March 1994 The U.S. also alleged there were ties between the facto- following the “Blackhawk Down” episode in Mogadishu. ry owner and al-Qaida. Sudan strongly denied any link The U.S. and international community effectively aban- and a number of experts who studied the case have raised doned the failed state, though 9/11 and the war against serious questions about the rationale for the attack. The the Taliban in Afghanistan briefly brought Somalia back Clinton administration, which had been under pressure into prominence in 2002, due to fears that the vacuum from domestic groups to take a hard line toward Sudan, there would provide a safe haven for al-Qaida supporters nevertheless made overtures in 2000 to Khartoum con- being chased from Afghanistan. Some of the ideas being cerning possible cooperation on counterterrorism. discussed in the government for dealing with the country Sudan responded positively; by the time the Bush admin- were wildly off the mark, however — no surprise given istration took power, the scene was set for improved ties. the loss of expertise that occurred during the post-1994 Following the 9/11 attacks, Khartoum quickly con- interregnum. Fortunately, calmer minds prevailed and cluded it was in its interest to increase cooperation with Washington did not do anything really stupid in Somalia. the U.S. on counterterrorism. This provided the Bush That said, the country is still a failed state where ter- administration an opportunity to advance the war on terrorist elements can move with impunity. Somalia has

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been home to al-Ittihad al-Islamiya, a fundamentalist Dawa in the southeastern part of the country. Training organization that has carried out terrorist attacks has begun for the first of three Ethiopian anti-terrorism against Ethiopia and is believed to have connections battalions. It is less clear how much terrorist interdic- with al-Qaida. The U.S. added al-Ittihad in 2001 to its tion CJTF-HOA has accomplished. Without providing Comprehensive List of Terrorists and Groups. It also details, the departing commander stated in May that included the Somali money transfer organization, al- they have captured “dozens of terrorists” and averted at Barakat, on the list. There is evidence that an al-Qaida least five terrorist attacks. cell based in Mogadishu took part in the 2002 attack on Although a good effort, the operation is not free of an Israeli-owned hotel outside Mombasa and a simul- problems. Relations with Sudan, especially after dis- taneous but unsuccessful attempt to shoot down an agreements over the new conflict in Darfur, have not Israeli charter aircraft. At the same time, Somalis gen- improved sufficiently to engage in military cooperation. erally are not predisposed toward Islamic fundamental- Somalia remains in too much disarray to think in terms of ism or entreaties by international terrorists. The situa- projects in country except for the more peaceful and self- tion in Somalia is worrisome and merits close monitor- declared independent Republic of Somaliland. The U.S. ing, but it is not even close to the threat once posed by has so far been unwilling to undertake activities in Taliban-governed Afghanistan. There appears, howev- Somaliland that might suggest it recognizes the country. er, to be no agreed-upon U.S. policy for dealing with Eritrea claims to seek cooperation with the U.S. on coun- Somalia. It is long past time to adopt one. terterrorism, but there have been problems translating this intention into action. There are also some opera- A Base in Djibouti tional issues. Turnover of CJTF-HOA personnel is too The U.S. embassy in Djibouti has traditionally been frequent, and area and indigenous language expertise are small and sleepy. But that changed after 9/11. The in short supply. American ambassadors in the region, country now hosts the only U.S. military base in Africa most of whom have only dealt with a military attaché on and welcomes coalition forces from France, Germany, their own staff, are still learning how to interact with an Spain and Italy. Some 1,800 American military and independent military commander. civilian personnel currently occupy a former French Foreign Legion facility at Camp Lemonier outside the The East Africa Counterterrorism Initiative capital city. Established in October 2002 and known as After 9/11 the State Department’s Office of the Combined Joint Task Force-Horn of Africa, it is Counterterrorism identified East Africa and the Horn, responsible for fighting terrorism in Djibouti, Ethiopia, especially Djibouti, Somalia, Ethiopia, Eritrea, Kenya Eritrea, Sudan, Kenya, Somalia and Yemen, and in the and Tanzania, to be at particular risk. In response, in coastal waters of the Red Sea, the Gulf of Aden and the 2003 the U.S. created a $100 million East Africa Indian Ocean. CJTF-HOA’s stated mission is to detect, Counterterrorism Initiative. This encompasses mili- disrupt and defeat transnational terrorist groups, to tary training for border and coastal security, programs counter the re-emergence of transnational terrorism to strengthen control of the movement of people and and to enhance long-term stability in the region. The goods across borders, aviation security, assistance for establishment of the base represents a dramatic change regional programs to curb terrorist financing, police for U.S. security policy in Africa since the closure many training and an education program to counter extrem- years ago of the Wheelus Air Force Base in Libya and ist influence. There are separate programs to combat Kagnew Communications Station in Ethiopia. money laundering. CJTF-HOA has devoted most of its effort so far to The major beneficiary so far of this funding has been training with allied forces and the armies of Djibouti, Kenya. The U.S. is working with Kenyan officials to Ethiopia and Kenya. It has conducted an impressive develop a comprehensive anti-money laundering/coun- number of civic action programs that refurbish schools terterrorist financing regime. The State Department’s and clinics and provide medical services in the same Terrorist Interdiction Program has established a com- three countries. CJTF-HOA established a temporary puter system that is now operational at select airports training facility for the Ethiopian military outside Dire in Kenya, Tanzania and Ethiopia, and is scheduled to go

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online this year in Djibouti and It took the coordinated modest programs just don’t mea- Uganda. The TIP system provides sure up to the threat. nations with a state-of-the-art com- bombings in 1998 of The components of the coun- puter network that enables immi- terterrorism program for East gration and border control officials Embassy Nairobi and Africa and the Horn are good as far to identify suspects attempting to as they go. But the focus is primar- enter or leave the country. The Embassy Dar es Salaam to ily short- and medium-term: catch- U.S. is also funding a police devel- ing bad guys, providing training opment program in Tanzania, make clear the full scope and, to a limited extent, building up Uganda and Ethiopia, developing a counterterrorism infrastructure. training and equipment program of al-Qaida’s menace. What is missing is a major, new, for Kenya’s law enforcement agen- long-term program to reduce cies, and setting up forensic labora- poverty and social alienation. tories in Tanzania and Uganda. U.S. foreign assistance worldwide in constant dollars As welcome as this new assistance is, it has not has declined about 44 percent since 1985 and another stemmed complaints from countries in the region. 18 percent since the collapse of the Soviet Union in Uganda claims it is being shortchanged because it has 1991. Until the U.S. and the international community dealt successfully with international terrorist threats on its generally are prepared to put far more resources into own. In addition, Kampala’s priority is dealing with local improving the environment that encourages terrorism terrorist groups such as the Lord’s Resistance Army and — namely poverty — it is difficult to see lasting Allied Democratic Front, while Washington is focused on progress against this enemy. If only the U.S. had had international terrorists like al-Qaida. Eritrea offered the the foresight years ago to devote to counterterrorism U.S. access to its port facilities and, together with and economic development the equivalent cost of over- Ethiopia, joined the “coalition of the willing” against Iraq. throwing the Taliban and rebuilding a destroyed But it now finds itself frozen out of counterterrorist assis- Afghanistan! tance because of U.S. concerns over the continued deten- Assuming adequate financial assistance from outside, tion of two Eritreans employed by the American embassy countries in the region must bear the primary responsi- and other human rights issues. Both Eritrean and bility for curbing terrorism. They know the different cul- Ethiopian cooperation on counterterrorism are also tures, speak the local languages and control the security linked to the two countries’ desire to gain favor with the forces. Foreigners will never be able to function as effec- U.S. on their festering border demarcation disagreement. tively in the native environment as local nationals. Accordingly, action on the recent recommendation by Looking Ahead the Africa Policy Advisory Panel (organized by the The resources and attention devoted to counterterror- Center for Strategic and International Studies) for an ism in East Africa and the Horn are impressive but inad- annual $200-million Muslim outreach initiative in Africa equate. At a House subcommittee hearing on terrorism is long overdue. in April, Chairman Ed Royce, R-Calif., emphasized that Finally, the U.S. has allowed its language and area the U.S. needs to devote more resources for counterter- expertise among foreign affairs personnel to degrade to rorism in Africa. He is correct. President Bush’s FY 2005 dangerous levels. The time has come to rebuild this international affairs budget request has as its top priority expertise. In the case of East Africa and the Horn, there the winning of the war on terrorism. Exclusive of Iraq should be adequate numbers of Arabic, Somali, Swahili and Afghanistan, it requests $5.7 billion for assistance to and Amharic speakers from State, the CIA, USAID and countries around the world that have joined the war on the military assigned to appropriate countries. Only then terrorism and another $3.5 billion that indirectly supports will the U.S. be able to engage in reliable information- the war by strengthening the U.S. ability to respond to gathering and increase the public affairs outreach to emergencies and conflict situations. The $100 million communities where Islamic fundamentalism and sympa- East Africa Counterterrorism Initiative and several other thy for terrorists are taking hold. ■

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THE ANATOMY OF TERRORISM Phil Foster

TERRORISM IS AN INSTRUMENT OR TACTIC — A WEAPON, NOT AN ENEMY. THUS, A “WAR” ON TERRORISM MAKES NO MORE SENSE THAN A “WAR” ON WAR.

BY RONALD SPIERS

y former boss, Secretary of State George Shultz, was a pretty unhappy camper whenever anyone repeated the cliché that “one man’s terrorist is another man’s freedom fighter,” but the thought carriesM a lot of truth. I once asked him why the French underground, which resorted to assassinations and bombings during World War II, and which was looked on by the Nazis and the Vichy regime as “terrorists” — and by us as freedom fighters — didn’t illustrate the validity of that characterization. He simply insisted that they were “not terrorists.”

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As that anecdote illustrates, Al-Qaida, estimated to reflects Clausewitz’ famous for many people a terrorist is description of war as a method someone whose objectives you have a presence of some of carrying on politics by other don’t agree with — it is not a mat- means: terrorism is the use of ter of the instruments they use kind in over 60 countries, violence by individuals, groups to advance those objectives. or nations to intimidate or instill Thus Gavrillo Princip, the is the chief threat we need fear for the purpose of advanc- Serbian student whose shot at ing a political objective. And Austria-Hungarian Crown Prince to concentrate on and like formal warfare, terrorism Ferdinand in Sarajevo sparked frequently kills innocent by- World War I, was a hero to choose the appropriate standers, either deliberately or Serbians, but a “terrorist” to the inadvertently (think of Naga- Austrians. We have many con- weapons to combat. saki, Dresden, Lidice). temporary examples, as well: the Terrorism, then, is an instru- Tamil Tigers who use violence ment, a tactic, a technique. It against the Singhalese in Sri Lanka; the Palestinians is a weapon, not an enemy. Thus, in my judgment a who want relief from Israeli occupation; the Kashmiris “war” on terrorism makes no more sense than a “war” who want self-determination; the Chechens who want on war. I believe it was unfortunate that President independence from Russia; the Basques; and the IRA. Bush adopted this mantra, however politically useful Which are they, terrorists or freedom fighters — or the idea that we are “at war” may be for other purpos- both? es, such as rallying political support by appealing to To answer that thorny question, we first have to look patriotic feelings or curtailing inconvenient liberties. at other questions. What do we mean by “terrorism”? The president has conflated all forms of terrorism any- Is it a new phenomenon, or does it have a history we where, whatever their roots, into one undifferentiated need to understand? What motivates it? What instru- ball of wax: do we really want to declare that violently ments are best suited to combat it? And what do we resisting an alien occupation, overthrowing a tyrant, make of the president’s “war on terrorism”? Is it etc. makes you an “enemy” of the United States? How winnable, and if so, how do we measure defeat or vic- un-Jeffersonian! tory? Or is terrorism (as some contend) something that Or, to put it another way, the “war on terrorism” is cannot be defeated, but only managed? Finally, is ter- best thought of as a metaphor, like the “wars” on crime rorism ever justified — or is all terrorism the same: or drugs or poverty. Taking the concept literally has led evil? If there can be “just” wars, are there not cases in to a lot of confusion and policy errors, chief among which it could be “justified” to resort to weapons of ter- them the assumption that military action is the primary ror if all non-violent paths are closed to those who seek tool with which to respond to terrorism. change in an unjust situation? Compounding the confusion (deliberately or not), The definition of terrorism I find most useful the administration persists in representing the conflict in Iraq as a part of the “war on terrorism.” As a result Ambassador Ronald Spiers was a Foreign Service offi- of such overheated rhetoric, millions of Americans cer from 1955 to 1989, serving as minister in London, continue to believe — despite the president’s belated ambassador to the Bahamas, Turkey and Pakistan, admission to the contrary — that Saddam Hussein had assistant secretary for political-military affairs and for a role in the 9/11 attacks, and that link (along with the intelligence and research, and under secretary for man- claim we were under imminent threat from his agement. Following retirement from the Service, he weapons of mass destruction) justified our invasion. served as U.N. under secretary-general for political But in reality, Operation Iraqi Freedom’s relationship affairs from 1989 to 1992. He writes and lectures on to terrorism has been, predictably, to increase the foreign affairs and is a fellow of the American Academy appeal of Osama bin Laden and his al-Qaida organiza- of Diplomacy. tion. Indeed, support for al-Qaida has metastasized to

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such an extent that the Osama bin Laden is a kind Jerusalem was established under International Institute for European rule and lasted until Strategic Studies now estimates of “reverse Crusader,” 1187, when a Kurdish general, that the group’s supporters Saladin, expelled Crusaders number over 18,000 and that answering a call of God to from the city. The Crusaders over 100,000 potential fighters eventually lost their religious have undergone training in expel Western influence focus, and in 1204 they ran- Afghanistan and elsewhere. sacked Constantinople, then a from Muslim lands. Christian city. A “Reverse Crusader” Osama bin Laden seems to Accordingly, al-Qaida — esti- me to be a kind of “reverse mated to have a presence of Crusader,” answering a call of some kind in over 60 countries — is the chief threat God to expel Western influence from Muslim lands we need to concentrate on and choose the appropriate (in 1998 he issued a fatwa that, in effect, declared war weapons to combat. There simply is no alternative to on the United States). Indeed, there is a family treating it as a continuing and fundamental threat to resemblance among all religious fundamentalists. our security, as the network has demonstrated by a Whether Jewish, Christian, Muslim or Hindu, they succession of costly blows, culminating in the 9/11 have a lot in common: adherence to scriptural literal- attacks. ism, rejection of pluralism (if we “know” the “truth,” Al-Qaida is not a new phenomenon. At least four dissent serves no function and shouldn’t be tolerated), previous, religiously-inspired movements in history an apocalyptic embrace of violence, a taste for con- have justified terrorism in God’s name — and all have spiracy theories and the often vicious repression of given synonyms for terror to our language: the Zealots, women. Its members often regard their own lives as Jews who fought pagan Rome from A.D. 66-70; the expendable and believe “martyrdom” is even to be Crusaders, who created a swath of destruction in welcomed. Europe and the Middle East during the 12th century; President Bush insists that the main motivation of the Assassins, an Islamic sect that wreaked havoc from al-Qaida and its followers is their hatred of freedom, the 12th to the 14th centuries; and the Thugs, Hindu pure and simple. It would be hard to come up with a sects that terrorized South Asia throughout the 18th shallower assessment — though the administration’s century. blithe assumption that any government that does not Of those precursors, by far the strongest parallel unquestioningly and wholeheartedly support the with al-Qaida comes from the Crusaders, who respond- United States in the war on terrorism is “against us” ed to Pope Urban II’s 1095 call for a “holy war” to expel comes a close second. the “Infidels” from the “Holy Land.” The pope pro- Still, the administration is correct that al-Qaida’s claimed that it was a Christian obligation to respond aims, insofar as we can understand them (they have militantly to Islam’s influence, which was rapidly morphed over time), are not ones that we can accom- spreading following the Turkish victory in the Battle of modate. Bin Laden’s first declared objective was to Manzikert (1071). He even offered absolution from sin force U.S. troops out of Saudi Arabia (their “Holy and special merit in heaven to those answering the call, Land”). He expressed outrage that “infidel” forces and the Crusaders went forward under the banner of were “occupying” Muslim lands and held that the deca- “Deus Volt” (God wills it). dent Western culture they brought with them was con- The First Crusade reached Jerusalem in 1099 (the taminating Islam. U.S. troops in Saudi Arabia were only one of the nine Crusades to do so), and led to a withdrawn as no longer necessary during the current bloody massacre in which thousands of inhabitants were Iraq war, but that has not diminished al-Qaida’s hostili- indiscriminately killed — Christian, Jew and Muslim ty; bin Laden now cites the fact that the same “infidel” alike. Crusader horses were said to be up to their fet- troops attacked Iraq, another Muslim nation, and locks in blood and body parts. The Latin Kingdom of remain there.

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The second issue al-Qaida In my view, tanical Shiite sensibilities. (The has been explicit about is the first shot in the revolution was U.S. role in the Palestinian our focus should the bombing of a movie house problem. Most Muslims and showing American films that reli- much of the rest of the world have remained gious authorities considered share this objection to an morally offensive.) Then, when American policy seen as one-sid- on Afghanistan, Iraq attacked Iran in 1980, the edly favoring Israel. U.S. supported Saddam Hussein At the root of bin Laden’s a difficult enough case because we regarded Tehran, implacable hostility, however, is with its strongly anti-Western probably his view of the nature on its own. ideology, as the principal threat. of Western culture. He de- In Afghanistan, meanwhile, nounces it as secular, impure, our response to the Soviet inva- materialistic, sex- and money-obsessed and implaca- sion was to work with Pakistan and Saudi Arabia in sup- bly bent on undermining Islam. To him, we represent porting the mujahideen by financing and supplying a new “Jahaliyya” (a time of ignorance before the weapons for their resistance. One of the beneficiaries truth was revealed by God), like the previous ones of our support was none other than Osama bin Laden. that Abraham, Jesus and, finally, Mohammed were When the Soviets ultimately withdrew from the coun- dispatched by God to overcome. This interpretation try in 1989 our attention wandered, leaving the chaos allows bin Laden to cast himself as a modern-day suc- of “warlordism” that finally brought the Taliban to cessor to those prophetic figures, and he is so viewed power to impose a kind of stability of the graveyard. by many followers. Our policies toward Pakistan soured and exacerbated For these and other reasons beyond the scope of the problem. this essay, I believe that the only way to cope with the Reacting to these developments, the U.S. gradually al-Qaida threat is to destroy its supporting network, built up a larger military presence in the Middle East. and to avoid policies that gratuitously increase its fol- This led to increasing culture clashes, particularly in lowing. Saudi Arabia and Egypt, where Wahhabism is particularly strong. Although only a minority of Arab Muslims The Larger Context practice this austere, fundamentalist strain of Islam, we To craft policies to accomplish those ends, however, need to understand it to appreciate the nature of our we need to take into account the fact that most of the clash with al-Qaida. terrorist problems we face in the Middle East were Wahhabism took root among the tribes of the exacerbated by our responses to two events that took Arabian Peninsula in the 1700s in reaction to the grow- place in 1979. The first was the Iranian revolution and ing secularization and decadence of the Ottoman the second, the Soviet invasion of Afghanistan. Both Sultanate. It is, like its Jewish and Christian funda- served to rekindle a dormant radical movement in mentalist counterparts, a kind of Puritanism, character- Islam. ized by the same messianic outlook, the same self-cer- The Iranian revolution was largely a reaction to the tain dogmatism, the same paranoia of the “true believ- policies of Shah Pahlevi’s secular regime that had had er” — and the same tendency to idealize the rapid the open-ended support of Washington. In fact, the spread of Islamic power and influence in the century U.S. had intervened in 1953 to restore the shah to after Mohammed’s death in 632. power after an election had installed a government that During the Golden Era of Islamic civilization, rough- threatened to nationalize the oil industry. Washington ly corresponding to the Middle Ages in Europe, had backed the shah’s “White Revolution” unreserved- Baghdad and Cordova were centers of world learning ly, selling him whatever weapons he wanted and over- and culture, unequaled in the West. Cairo, Tehran and loading Iran with American military personnel who Istanbul were world-class cities compared to London or brought with them a culture that offended many puri- Paris. Arab scholars (e.g., the physician/philosophers

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Averroes and Avicenna) transmitted to the West the Balfour Declaration of 1917; the United Nations-spon- fruits of Arabic mathematics and science (algebra and sored partition plan and the establishment of Israel in the concept of “zero” are Arab inventions and the West Muslim-majority territory in 1947-48; and the Cold abandoned the cumbersome Roman numerical system War-era increase in Western support of authoritarian for the Arabic) and a rich body of classical Greek writ- and corrupt Arab regimes for the purpose of securing ings that they had translated into Arabic and thus pre- oil supplies, necessitating an expanding military and served. political presence in the area for the U.S. And fairly or But from that zenith of Muslim dominance, Islam not, it is that prominence that renders us, the predom- suffered a steady succession of attacks and reversals, inant symbol of the West, such an effective scapegoat beginning with the Crusades. Baghdad was destroyed for bin Laden and his supporters. by Hulagu Khan (Genghis’ grandson) in 1258; the Cordova Sultanate fell in 1492; the Muslim advance in The Way Ahead the Mediterranean was stopped at Lepanto in 1571 and In some respects, we have done fairly well in deal- in Europe at Vienna in 1683; the British put an end to ing with al-Qaida since 9/11. Working with other gov- the Mogul Empire in 1858; and the Ottoman Empire ernments, we have destroyed or captured key members collapsed at the end of World War I. of its leadership, uncovered many of its sleeper cells Then came a new era of Western (largely French around the world, and disrupted its financing and com- and British) Christian imperialism beginning during munications networks by careful intelligence and World War I that produced further Arab humiliations police work. We have materially improved our defens- like the Sykes-Picot Agreement of 1916 and the es at home, although many holes remain and may be

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beyond our ability to close. Nothing would diminish the is doubtful at best. If we could These, more than main military contain the threat of a power- force, are the instruments we threat from Islamic ful and nuclear-armed Soviet will continue to need. As with Union for decades, we could an international criminal con- fundamentalist terrorism, and certainly have done so with a spiracy, patience and sustained weak and debilitated regime in effort in a variety of areas is key. improve relations with the Iraq. At the same time, however, In my view, our focus too many of our policies toward billion-plus Muslims around should have remained on the region have had the effect of Afghanistan, a difficult enough strengthening the recruiting the world, so much as a case on its own, but one where power of the “true believers” in action was more justifiable and the Arab “street”: resolution of the the threat unquestionable. We Iraq. I am still appalled by have probably sacrificed our the naïveté of so many in the Palestinian problem. potential for success there by current administration who turning to Iraq, which repre- advocated war as a first step in sented no real security threat an American-led “democratization” of the Middle East. to the United States. As Shakespeare wrote in Henry V, they have “a heavy Palestine. I am sure nothing would diminish the reckoning to make.” threat from Islamic fundamentalist terrorism, and I don’t think you can spread democracy by force in improve relations with the billion-plus Muslims areas where little or no sense of civic commonwealth around the world, so much as a resolution of the and harmony exists. Democracy can only grow organ- Palestinian problem. This issue has caused intense ically, from the inside, where the cultural soil is hos- hostility throughout the Muslim world against the pitable and the societal preconditions exist or can be United States, in particular, since 1967. A further readily developed. These include a modicum of liter- damaging setback was President Bush’s recent depar- acy and education, absence of extremes of wealth and ture from the traditional U.S. position on Israeli set- poverty, a tradition of respect for and protection of tlements (they are illegal under the Fourth Geneva minority rights, acceptance of the rule of law, the bal- Convention) and the Palestinian “right of return” ance wheel of a stable middle class, a minimum of (most of the world believes they should have a nego- ethnic and confessional conflict, etc. The fact that we tiated but limited right of return and/or compensation went into Iraq in the face of overwhelming interna- for the loss of ancestral property since 1948). This has tional opposition and on the basis of exaggerated jus- strengthened the perception that we are hopelessly tifications has only amplified the difficulties arrayed biased toward Israel and cannot be trusted to support before us. an equitable agreement that protects the interest of Yet in my view we now have no alternative to trying both parties. to fulfill our obligation toward reconstruction and As The Economist recently observed, “In just the encouraging political reform in Iraq. Although I way that many Americans see no distinction between believe it is a long shot, it is possible that some form of the terrorism of al-Qaida and the terrorism of the liberalization in Iraq will eventually take root and its Palestinian intifada, so many Arabs see no distinction people will ultimately be better off. But whether rid- between Israel’s occupation of the West Bank and ding Iraq of Saddam Hussein and his sons justified the Gaza and America’s occupation of Iraq. Both are por- loss of life and maiming of so many Americans and trayed as similar dramas of Islamic resistance.” Iraqis, the awesome economic costs, the damage to Economic development. We have made many important international relations, the enhancing of the strategic and tactical mistakes in our counterterrorism attractive power of al-Qaida and other terrorists, and policy, but the very worst has been our failure to deal the diminishing of the reputation of the United States, with the swamp of poverty and ignorance that spawns

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and sustains terrorism. Shamefully, the United States terrorism is being cultivated, and American is doing ranks last among the countries of the developed, demo- precious little about it. cratic world in the percentage of its resources it Attitude adjustment. Finally, we should be aware devotes to international development assistance. We that our historic belief in American “exceptionalism” is allot less than one-tenth of one percent of our annual widely interpreted abroad as arrogance, even among GDP to foreign aid, and a lot of this aid goes to one our traditional friends and allies. A lifetime of living country with a per-capita GNP of over $17,000: Israel. and traveling in other countries has led me to the con- If we had spent on development assistance the amount clusion that on the whole, Americans are no better and we have spent, and will spend, on Iraq, we would be no worse than the rest of mankind. The advantages we much more effective in our anti-terrorism efforts. have — and share with other democracies — are the When the gap between rich and poor widens, as it institutions and rules that help shelter us from the fall- has, and half the world’s population lives below the en angels of our nature. We must not let these institu- poverty line, anger and alienation are the inevitable by- tions be weakened in order to combat terrorism. product. When 30,000 children die daily of diseases I believe George Washington offered us the best readily curable in the West, envy, guilt and desperation foreign policy advice when he said our aim should be to are by-products. In the next 15 years a billion people “raise a standard to which the wise and honest may will be added to the world population even as our pop- repair.” Then our virtues will speak powerfully for ulations in the West age and contract. A fertile field for themselves. ■

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KAMIKAZES: PRECURSORS OF 9/11? Phil Foster

TODAY, 60 YEARS LATER, THE STORY OF THE KAMIKAZES ECHOES EERILY IN THE PHENOMENON OF SUICIDE BOMBING IN THE MIDDLE EAST AND 9/11 ATTACKS.

BY JOSE ARMILLA

t was an ironic reversal of fortune. In October 1944, Tokyo named Vice Admiral Takijiro Onishi the new commander of Japan’s First Air Fleet, based in the Philippines. Onishi was the man responsible for planning the knockoutI blow against the U.S. Pacific Fleet at Pearl Harbor by Japan’s carrier-borne aircraft on Dec. 7, 1941. But three years later, after his arrival at Clark Field, he found that his forces were on the ropes in the Philippines. Americans, after raids on several bases, had destroyed nearly two-thirds of the entire Japanese fighter-plane force in the country and were gathering a massive armada off the east coast of Leyte.

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On Oct. 19, 1944, Onishi called Unbeknownst to MacArthur, pilots bent on crash-diving into a staff meeting. “As you know, the U.S. ships. war situation is grave,” he stated. a secret weapon was being Early on Oct. 21, 1944, the “There is only one way of assuring Kamikaze Special Attack Corps that our meager strength will be readied: a kamikaze strike made its debut from Cebu’s Lahug effective to a maximum degree. Airport. During the launching, That is to organize suicide attack using Zero fighter plans, Lieutenant (jg) Yoshiyasu Kuno units.” Onishi picked the name positioned his Zero fighter aircraft kamikaze (“divine wind” or “divine each carrying a 550-pound first on the runway, followed by intervention”) after the legendary Ensign Chisato Kunihara piloting typhoon that prevented the bomb, with pilots bent on the second Zero. At the rear, two Mongol fleet from invading and more fighters were ready for take- conquering Japan in the 13th cen- crash-diving into U.S. ships. off as escorts to protect them tury. The Kamikaze Special against American interceptors. At Attack Corps was born. daybreak in Leyte, the formation Kamikaze volunteers signed on just in time to terror- was met, not by fighter interceptors, but by heavy flak ize thousands of American sailors and airmen during that shot down two of the planes. However, one three major naval operations: the landings at Leyte, the kamikaze managed to crash-dive into the bridge of the epic Battle of Leyte Gulf, and the invasion of Luzon at HMAS Australia, damaging the cruiser and killing Lingayen Gulf. Captain Deschaineux and 19 other Australian Navy per- Today, 60 years later, the story of the kamikazes echoes sonnel. The Allies did not know then that what had hit eerily in the phenomenon of suicide bombing in the them was the “inaugural” kamikaze sortie from Cebu. Middle East and the extremist terrorism brought home The massive American flotilla off Leyte’s east coast to Americans on 9/11. included warships from the U.S. Third Fleet under Admiral “Bull” Halsey, and the U.S. Seventh Fleet under A Secret Weapon Admiral Thomas Kinkaid. They numbered 17 fleet and On Oct. 20, 1944, the liberation of the Philippines 18 escort aircraft carriers, 12 battleships, 28 cruisers, 150 began when beachheads in Leyte were established and destroyers, and hundreds of amphibious landing craft American troops poured inland, initially with little resis- and transport ships. On board was the vanguard of the tance. General MacArthur, accompanied by Philippine 175,000 troops of the U.S. Sixth Army. Commonwealth President Sergio Osmena, Brigadier The aircraft carriers and cruisers were deemed prior- General Carlos P. Romulo and American commanders, ity targets by the kamikazes. The first order to the waded ashore at Beach Red in Palo. Moments later kamikazes read: “Do not be in too much of a hurry to die. MacArthur broadcast a message to the Filipinos that he If you cannot find your target, turn back; next time you had just redeemed his pledge to return to the may find a more favorable opportunity. Choose a death Philippines. which brings about a maximum result.” Yet unbeknownst to MacArthur, a secret weapon to counter the invasion was being readied for takeoff the MacArthur in Their Sights next day. The weapon: a kamikaze strike using Zero While cruising in the Philippine Sea to shield the fighter planes, each carrying a 550-pound bomb, with Leyte invasion, “Bull” Halsey’s Third Fleet came under attack from Admiral Soemu Toyoda’s Combined Fleet of Jose Armilla is a former Foreign Service officer who the Imperial Japanese Navy. Thus began the epic Battle served in Vietnam, Chile and Hong Kong. He is the of Leyte Gulf, the largest naval engagement in history, on author of Negotiate with Feng Shui: Enhance Your Oct. 23, 1944. The kamikazes flew 55 missions during Skills in Diplomacy, Business & Relationships this air and sea combat. Their participation sealed a rep- (Llewellyn Publications, 2001) and is a feng shui con- utation for wrecking havoc on the American fleet. sultant to CEOs. Nevertheless, Toyoda met an ignominious defeat, losing

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26 of the 64 warships in his fleet. “We watched each plunging their sights. As his invasion con- Only on the final day of battle, voy proceeded from Leyte Gulf Oct. 25, did the kamikazes score kamikaze with the detached to Lingayen Gulf in Luzon, a big with the sinking of their first kamikaze took a nosedive into U.S. ship — the escort carrier USS horror of one witnessing a the heavy cruiser USS Nashville, St. Lo, off Samar. damaging the invasion flagship When the American invasion terrible spectacle rather than that had carried MacArthur to fleet approached Lingayen Gulf Leyte two months earlier. on Jan. 4, 1945, kamikaze opera- as the intended victim…” MacArthur would have been on tions entered a climactic phase. board this flagship, but luckily All-out kamikaze strikes greeted — U.S. Vice Admiral Charles R. Brown changed his plans at the last the U.S. fleet, with the familiar minute. suicide dive followed by burning MacArthur led the invasion ships and bodies of sailors in open waters. Vice Admiral on board the replacement flagship, USS Boise, a light Charles R. Brown wrote: “We watched each plunging cruiser. A Japanese submarine at Lingayen fired two tor- kamikaze with the detached horror of one witnessing a pedoes at the Boise. From the quarterdeck, MacArthur terrible spectacle rather than as the intended victim. … calmly watched their approach: both swished by, missing And dominating it all was a strange admixture of respect their target, thanks to the cruiser’s evasive action. and pity.” Sometime later, a kamikaze plunged toward the Boise, The kamikazes probably also had Gen. MacArthur in but the plane was hit by flak and exploded seconds away

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Figure 1

Figure 2

Figure 3 Kamikazes in Action

n Nov. 25, 1944, the aircraft carrier USS Essex be fitted inside the fuselage rather than carried exter- sailing off the east coast of Luzon came under nally. Ocoordinated attack by a kamikaze shotai (a three- The demise of two kamikazes is captured in this sin- plane formation favored by Japanese pilots). The lead gle dramatic image (Fig. 3). The first ends in a fiery crash plane plunged toward the Essex, aiming for the flight on the port side of the forward flight deck, wrecking its deck of the carrier where fighters were being gassed up 20mm battery, but at the same time sparing the gassed- for takeoff. In Fig. 1, the plane dives perilously close to up planes on the flight line. The second kamikaze crash- the radar towers. In Fig. 2, flak has set the plane es into the sea, missing its target. A patch of white foam aflame, and the kamikaze pilot slides open the canopy marks its watery grave — visible just beyond the bow of and sticks his head out as if to say “Komatta-na! (I’m an escort destroyer partly hidden by the Essex. In this in trouble). My left wing is on fire!” The code numer- episode, the aircraft carrier suffered minor damage, and al 17 on the tail unmistakably identifies the Zero as the light casualties. After undergoing repairs at sea, the ship new A6M7, modified to enable the 550-pound bomb to was able to continue its mission.

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from the cruiser’s decks. Where Al-Qaida probably considered close was by U.S. Navy combat was MacArthur at that moment? photographers (see p. 54). According to his personal physi- adopting kamikaze battle cian, Dr. Roger O. Egeberg, the ‘This Is My Last Day…’ general was below deck asleep in tactics as early as the spring On the Japanese side, the his bunk. When asked how he Navy carefully documented the could sleep through it all, of 1999, when Osama bin kamikaze pilot’s last day on earth. MacArthur replied, “Well, Doc, While waiting for orders, many I’ve seen all the fighting I need Laden sent Mohammed Atta to would write poems extolling the to, so I thought I’d take a nap.” emperor, in the feudal tradition According to the U.S. Navy’s the Philippines for pilot of good manners and loyalty to scoreboard at war’s end, the group and nation. Before kamikazes had sunk 16 ships and training at Clark Field. takeoff, the pilots typically damaged 80 others in the exchanged toasts of sake with Philippine theatre. As dead their commander. Ground pilots couldn’t radio back to report their missions’ results, crews packed boxes of delicacies with rice and tofu for Japanese commanders usually remained in the dark their last in-flight meal. Each kamikaze wore a hachima- about their effectiveness. Their only feedback was from ki (thin cotton towels or strips of cloth tied around the the U.S. Navy, when it announced the loss of or damage head, worn as a charm against evil spirits in ancient times, to its ships. The best photo reporting of a kamikaze up and later to express one’s determination) to emulate the

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samurai warrior’s coolness and courage, and bowed an “ultra-light” plane, possibly a Max-Air Drifter or CGS deeply to the emperor before leaving. For the memorial Hawk, at a popular flying school where one could photograph, the pilots displayed large nametags and progress to solo flights within 10 hours. One can even fly posed with their samurai swords. (cautiously) over the familiar “Twin Peaks” of the area — For some, their final departure from earth was worth Mt. Arayat in the northeast and Mt. Pinatubo in the writing home about, as exemplified in 23-year-old Isao southwest. Atta’s lessons thus included a dress rehearsal Matsuo’s letter to his parents: “Please congratulate me. I of his suicide crash into the World Trade Center. have been given a splendid opportunity to die. This is my In addition to the practical advantages of that facility, last day. The destiny of our homeland hinges on the deci- Clark Field was also the perfect place for an aspiring sui- sive battle in the seas to the south where I shall fall like a cide pilot like Atta to soak up kamikaze lore. Today a blossom from a radiant cherry tree. May death be as sud- nearby sugar cane field marks the location of an airfield den and clean as the shattering of crystal.” occupied by the Japanese during World War II. A Shinto In postwar accounts of its operations in the torii (gateway) leads the visitor toward a historical mark- Philippines, the Imperial Japanese Navy counted a total er established by Japanese war veterans. This local of 447 missions by kamikaze aircraft before Japan sur- tourist attraction commemorates the exact location of the rendered on Aug. 10, 1945. Interestingly, the success “Kamikaze First Airfield” and honors the likes of rate was only 45 percent. In other words, only 201 pilots “Founder Admiral Onishi” and “The World’s First crashed into their intended targets. Official Human Bomb.” While staying in a hearby hotel, What happened to the rest? Fifteen percent failed Atta may well have visited this site, which lists numerous when the planes were shot down away from their targets U.S. Navy ships hit by Onishi’s pilots. by anti-aircraft fire and by fighter-interceptors, or they There are a number of parallels between the two crashed due to bad weather or mechanical failure. A sig- groups of suicide bombers. Both the 9/11 terrorists and nificant proportion — 40 percent — returned to base to the kamikazes were suicide bombers piloting an aircraft. “die another day” in keeping with bushido, the “way of The sneak attack at Pearl Harbor, planned by Vice the warrior” in Japan’s feudal past. Admiral Takijiro Onishi, killed 2,388 Americans; the sui- On the day of surrender, Vice Admiral Matome Ugaki cide attack on the World Trade Center in Manhattan, the managed to crash-dive into a U.S. warship off Okinawa Pentagon in Washington, D.C. (and the crash of a fourth for the last kamikaze mission of the war. For his part, the hijacked plane in Pennsylvania short of its target), steered founder of the kamikaze, Vice Admiral Onishi, upheld by Mohammed Atta some 60 years later, resulted in the bushido tradition to the end. Instead of surrendering about 2,800 dead. The two men taught Americans the to the Allies, he committed seppuku — ritual suicide by grim lesson that the Pacific and Atlantic Oceans no ripping open the abdomen with a knife. longer protected them from foreign aggression.

An Eerie Connection Fanaticism Sept. 11, 2001, revived grim memories of the While the kamikaze pilots took off in Zero fighters kamikazes. An unexpected and well-coordinated terror- laden with 550-pound bombs, the 9/11 terrorists flew ist attack unfolded when two hijacked Boeing 767 pas- with the intention of using the Boeing aircraft’s full load senger aircraft crashed separately into the North and of jet fuel as bombs. Both sets of combatants went after South Towers of the World Trade Center in New York specific targets identified by their commanders. The City. Later a third hijacked aircraft, a Boeing 757, hit the kamikazes homed in on the aircraft carriers and cruisers Pentagon in Washington, D.C. Did the 9/11 terrorists of the U.S. armada in the Western Pacific, which they draw inspiration from the kamikazes? The following facts believed were bent on invading the Japanese homeland. point to an eerie connection between the two groups. Similarly, the 9/11 terrorists fought a jihad against “Jews Al-Qaida probably considered adopting kamikaze bat- and Crusaders that gather on our lands,” their two sworn tle tactics as early as the spring of 1999, when Osama bin enemies. And the U.S. is a target-rich environment for Laden sent Mohammed Atta to the Philippines for pilot jihadis. One in eight New Yorkers is Jewish, mainly in training at Clark Field. There he took flying lessons on white-collar occupations, rendering the World Trade

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Center a logical target in the twisted minds of the al- able death in defense of the emperor is a great blessing.” Qaida plotters. The Pentagon was another logical objec- They were, in the words of their commander, “gods with- tive, particularly if one thinks of the ubiquitous U.S. mil- out earthly desires.” In one fell swoop, the kamikaze’s itary presence in friendly Arab countries today as the lat- nosedive glorified religion, patriotism, tradition and ter- est incarnation of the 12th-century Crusaders. ror — the key elements in understanding the use of sui- Finally, the 9/11 terrorists and the kamikazes shared cide terrorism by America’s adversaries today. a fanaticism with religious overtones. The al-Qaida Fortunately, contemporary Japan is a far cry from plotters saw themselves as moral crusaders against the Islamic societies that spawn religious terrorists. The infidels of the West, and claimed paradise as their just rich Japanese live in a pacifist, cohesive and high- reward. In February 1998, al-Qaida formalized this achieving culture. Today the kamikaze’s bushido spirit crusade under the banner of “The International Islamic is manifested in the salaryman’s proverbial loyalty to Front for Jihad against the Jews and Crusaders.” the company. He spends an entire career as a desk- Mohammed Atta’s final sheet of instructions to fellow bound corporate warrior, making it far more likely that 9/11 hijackers read in part: “Shout ‘God is great!’ Know he will die from karoshi — death from overwork at the that the gardens of paradise are waiting for you in all office — than seppuku. His loyalty is reinforced by their beauty, and the women of paradise are waiting, such company benefits as borrowing against his retire- calling out, ‘Come hither, friend of God.’ They have ment account to buy a house or to send his children to dressed in their most beautiful clothing.” the university. For their part, the kamikazes hewed to the bushido Will a similar peaceful transformation be the fate of version of Japan’s Shinto religion that states “an honor- today’s would-be religious terrorists? Let us hope so. ■

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HUMANITARIAN MERCENARIES

fter the horror of the 9/11 While some expected that the bulk of the aid would attacks, the big, gray U.S. Air flow from Uzbekistan across the “Friendship Bridge” at Force C-17 cargo plane landing Termez, Uzbek authorities (citing security reasons) frus- at Ashgabat International Air- trated attempts by international relief groups to use this port in November 2001, after a route. Thus, Turkmenistan became a critical land corri- long flight from an Air Force dor, second only to Pakistan, through which was delivered base in Charleston, S.C., was a over a third of the American aid to Afghanistan during the beautiful sight. True, the plane next few fateful months. didn’t have the sleek lines of a fighter bristling with weaponry,A but it did have a small American flag on its tail “Surrounded by Danger” and, in black lettering, “United States of America” along My odyssey in Turkmenistan had begun more than a the side — a reassuring sign America remembered that a year earlier, in August 2000, when my wife Eileen was few of its own were out here in Turkmenistan, at the edge assigned as the political/economic officer to the small of the new war on terrorism. embassy in Ashgabat. I took a leave of absence from my For the past several years, position as an attorney with the Osama bin Laden and his al- IN THE TENSE DAYS FOLLOWING State Department to accompany Qaida forces had been treated as her, and used my legal skills to “guests” of the Taliban and had 9/11, THE SMALL U.S. EMBASSIES work with USAID. used Afghanistan as a base of IN CENTRAL ASIA SUDDENLY Strategically located in operations for terrorist activities, FOUND THEMSELVES ON THE Central Asia, Turkmenistan is including the 9/11 attacks. So in FRONT LINES OF THE WAR ON about the size of California but October 2001, Afghanistan — with the population of metropol- TERRORISM. HERE IS ONE one of several “hot spots” bor- itan Houston, and sits atop one dering Turkmenistan — became ACCOUNT. the world’s largest reserves of the focus of America’s military natural gas. At the time we response. BY JOHN W. KROPF packed our bags to go there, it The C-17 was carrying the was the most isolated and unex- first load of humanitarian aid plored of the former Soviet destined for the war-ravaged and drought-stricken Afghan republics and had only come into existence as an inde- people: pallets of blankets, tents, medical kits and high- pendent country in 1991. But the United States was energy biscuits, all lashed down with cargo netting. already actively working to nudge Turkmenistan away Though the shipment had taken a couple of months to from its Soviet past of one-party rule and a centrally- arrive, USAID, Embassy Ashgabat and a variety of inter- planned economy. national organizations had begun organizing truck con- When I arrived, I bought T-shirts from the embassy’s voys for the aid shortly after the 9/11 attacks. With U.S.- newly established Marine Security Guard detachment. taxpayer funding, the World Food Program opened a bag- Under a map of the country that showed it surrounded by ging operation in the western town of Turkmenabat, from Afghanistan, Iran, Kazakhstan and Uzbekistan, a slogan which wheat was trucked into the most severely ravaged summed up the complex geopolitical situation: Afghan regions. “Surrounded by Danger — We Got ’em Right Where We

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Want ’em.” The Marines were pre- T-shirts sold by Embassy the embassy. They created a colorful scient. stripe down the sidewalk. On Sept. 11, 2001, the chargé d’af- Ashgabat’s Marines faires was out of the country for the On the Front Lines day on official business, leaving showed a map of the Once our chargé returned the Eileen as acting chargé. We both had next day, we began the difficult task a busy but routine day and were region with the slogan: of preparing for the uncertain days happy when the workday drew to a ahead. In light of the Taliban’s threat close. It was after 6 o’clock in the “Surrounded by Danger to attack any country that provided evening, Ashgabat time, when we assistance to the U.S., we took seri- returned to our home on the — We Got ’em Right ously the rumors that Taliban follow- American compound. ers were already on the streets of I came in ahead of Eileen and Where We Want ’em.” Ashgabat. turned on CNN as usual, just in time As a front-line state in what the to see the first tower of the World U.S. media called the “first war of the Trade Center burning from a crash by a passenger plane. 21st century,” we attracted a great deal of newfound atten- I could hear her in the doorway outside saying to a col- tion. Network news anchors displayed giant “war room” league, “Thank God nothing happened today.” maps of Afghanistan and its neighbors, including Within minutes of my calling Eileen to the television, a Turkmenistan (though FOX News labeled it “Uzbekistan” second plane flashed across the screen like a black crow for the first two days of its coverage). Friends and rela- and disappeared behind the second tower. Plumes of tives sent us e-mails saying they had never realized exact- flaming jet fuel erupted out the other side of the building. ly where we were. By evening’s end, most of the families on compound In the weeks following 9/11, the Department of State had gathered in our living room watching CNN. It issued a travel warning advising Americans not to travel to seemed unreal to witness the disintegration of the Twin Turkmenistan and evacuated all Peace Corps Volunteers Towers, especially from the other side of the globe. back to the States. The embassy began a process of autho- Turkmenistan state TV took the unprecedented step of rized departure of employees that included my wife and breaking from its highly predictable pattern of news sto- 3-year-old daughter. On Oct. 5, our new ambassador, ries devoted to the country’s president, Saparamurat Laura Kennedy, arrived. A few days later, U.S. Air Force Niyazov (self-declared as Turkmenbashi, “leader of all and Navy planes began bombing targets over the horizon Turkmen”), showing the attacks as the lead story and in Afghanistan. devoting about 10 minutes of coverage to it. Although its Despite the war next door, most activity in Ashgabat coverage soon reverted to the president’s achievements, continued to focus on Turkmenistan's 10th-anniversary the cotton harvest, and preparations for the country’s 10th celebration in October 2001. In preparation for the anniversary, private citizens left hundreds of bouquets of Independence Day parade, rectangular blocks of soldiers flowers as offerings of condolence along the front fence of with AK-47s practiced their formations around the presidential square and the Olympic-sized stadium across the A Civil Service employee, John Kropf has been an street from USAID’s office. Construction on a 10th- attorney in the State Department’s Office of the Legal anniversary monument — a fountain with 10 larger-than- Adviser since 1992. From 2000 to 2002 he was part of life Ahal-Tekke horses — continued around the clock. a tandem couple with his wife, a Foreign Service offi- Meanwhile, international media and relief workers cer, in Ashgabat. He has published articles on were desperately trying to enter the country so they could Turkmenistan in the Baltimore Sun, The Washington use it as an alternate route into the Afghan war zone. But Times and Marco Polo Magazine, and is currently foreign journalists, including the BBC, were routinely writing a book on the country. The views contained in denied entry visas, reflecting Turkmenistan’s historic sus- this story are his and not necessarily those of the State picion of foreigners. As a practical matter, there was lit- Department or the U.S. government. tle the embassy could do to change the minds of Ministry

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September, were replaced by humanitarian relief workers funded by USAID. One enterprising group of relief workers displaced from Afghanistan closed their field offices in Afghanistan’s Balkh province and flew themselves to Pakistan; from there, they traveled to the UAE, where they obtained tourist visas to Ashgabat. They planned to work with USAID and the U.N. to deliver relief supplies to the Afghans until the fighting died down and they could return.

All’s Quiet on the Above: Trucks line up to receive Afghan Border humanitarian relief We were keenly aware of supplies. Right: Humanitarian cargo is unloaded for transport U.N. estimates that as many to Afghanistan. as 50,000 Afghan refugees might soon be displaced into Turkmenistan, many of them Bottom Right: ethnic Turkmen already con- Interior of C-17 centrated mostly along the after offload of food border. They had been nomadic tribes that supplies. had crossed freely back and forth until the Below: John Kropf Soviet Union closed the border in the (right) with crew 1930s. But most of our discussions with the members of the first Turkmenistanis about organizing relief C-17 relief flight to efforts went nowhere, as every government arrive in Ashgabat, office was occupied with preparing for the from Charleston, celebrations. S.C. However, the government did facilitate a trip we made on Halloween 2001 to assess the situation along the Turkmen-Afghan border — our first journey outside the capital since 9/11. I knew we would be riding in a Soviet-made helicopter that had probably last seen service during the Soviet- Afghan war. The morning I was to go to the airport, I was overtaken with a moment of anxiety. Had the helicopter been maintained since the collapse of the Soviet Union? All this was a long way from being a government lawyer safely behind a desk, looking through the Code of Federal Regulations! My anxiety got the better of me, and I wrote an “if-something-should-happen” letter to my daughter of Foreign Affairs officials responsible for issuing the Charlotte, now 3 years old. I tried to tell her everything American journalists entry visas. she might want to know about me and what advice I The relief workers fared slightly better, thanks to the thought she might need — all in the span of five minutes. embassy’s strenuous efforts (reflecting how high a priority Our embassy delegation flew from Ashgabat to a town humanitarian assistance was). The American employees called Mary to board the helicopter. It looked like a giant of USAID’s partners who had left at the end of bulging insect that had been painted in a mixed desert

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camouflage. Alongside it were a couple of dozen heli- hilltop that had marked the southernmost point in the copters whose rotors had been removed. I looked twice Russian empire. to make sure the rotors had not been left off ours. At the border checkpoint we looked across two red- Inside were bench seats with two 100-gallon auxiliary and-white wooden gates into a small cluster of buildings. fuel tanks on either side. I thought to myself, “Yes, please; That turned out to be the village of Turgundi in take all the fuel you need. Don’t want to get caught short Afghanistan. An irregular ridgeline of tan colored moun- near the Afghan border.” The windows looked like port- tains loomed in the background. A set of train tracks, a holes that had been removed from a ship. branch line of the Trans-Caspian Railroad that originated On takeoff, the intense noise, vibration and smell of in Mary, ended about a kilometer inside the border. aviation fuel combined to start an immediate headache. It was all strangely quiet. There was no activity to be “Only a couple more hours of this,” I told myself. seen on the Afghan side of the border. Over the ridgeline, The landscape was a flat, arid waste covered by a dirty 80 miles down the road, was Herat, where some of the white sky heavy with heat and sand. Dusty hills rolled on heaviest bombing had taken place. Somewhere over to the horizon. There were no signs of refugees. The land there, Americans were already fighting the Taliban and al- formed a natural barrier that seemed incompatible with Qaida. It was a drama that we could only imagine. human beings. Occasionally in the middle of this vastness We flew along the Afghan border before banking west was a shepherd herding a flock of black-haired sheep. toward Mary. The terrain was beautiful in its rugged des- We landed at Kushgy, the southernmost point in olation. On the Turkmen side were several patches of Turkmenistan. Our hosts drove us through the small wild pistachio trees. Looking into Afghanistan, the town, past a whitewashed Russian Orthodox cross on a smooth, undulating hills made it look like we were flying

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over an ocean of brown swells and By November 2001, During November and troughs. There were no signs of December 2001, USAID provided refugees to be seen. If someone NGOs were finally able to get tons of relief supplies and Simon wanted to hide, however, never to was indispensable in organizing be found, the Afghanistan land- some workers into them for shipping on hundreds of scape looked like the place to do it. trucks. They drove more than two Turkmenistan, thanks in large hundred miles over horribly rutted Humanitarian Mercenaries tracks in the desert to the Afghan By November 2001, NGOs were part to substantial U.S. border. But because there were finally able to get some workers into no news media here, the outside Turkmenistan, thanks in large part lobbying, and humanitarian world did not know of this extraor- to substantial U.S. lobbying. dinary effort. USAID had also sent out a special assistance started flowing to Things continued to move disaster team to help organize ship- quickly. The Northern Alliance ping non-food items, including plas- Afghanistan. forces now controlled the upper tic sheeting, tents, wool blankets half of Afghanistan, including the and coats. The World Food Pro- area along the Turkmen and gram came equipped with people and money. Finally, the Uzbek borders, and it was clear the Taliban would soon be first of many humanitarian flights to deliver aid by way of routed from power. In December, during the month of Turkmenistan began arriving, starting with the C-17 from Ramadan, President Bush personally saw off two Charleston, S.C., I mentioned at the beginning of this arti- American Red Cross humanitarian flights originating cle. During the first week of November alone, six C-17s from Maryland. landed with humanitarian relief, both food and other The first C-17s carried over 1,600 winter jackets, 1,500 necessities. winterized, family-size tents, and 10,000 gift parcels of “Humanitarian mercenary” was how Simon, an clothes and school supplies and candies for the children of American relief worker I’d known for some time, Afghanistan, funded by donations from American school- described himself. The combination of his small frame children. All of it was flown to Ashgabat and loaded onto and the bushy red beard he’d only recently grown gave waiting trucks headed for the Afghan border. him the air of an oversized leprechaun — albeit one with I saw Simon and many of the relief workers togeth- a serious demeanor. The day after he fled Afghanistan, I er in the week before Christmas 2001. They had gath- met him at the embassy. Simon had been living in ered for a “last supper” at a hotel that boasted Afghanistan for the last year and had grown the beard in Turkmenistan’s only Italian chef. The relief workers, a an attempt to minimize scrutiny by the Taliban, who had diverse group of Americans and Europeans who knew issued edicts that men not shave their facial hair. (I each other from providing assistance after all kinds of remember reflecting on the futility of keeping a red beard disasters, were a culture unto themselves. Many had from standing out in a world of black beards.) Just two worked overseas for years, as if they knew no other life. days before that initial encounter, he had been expelled by They greeted each other with a carefree camaraderie: the Taliban and found his way to Turkmenistan by way of “Were you in the Congo? Or was it Kosovo?” Even if Pakistan. they did not know each other, they usually knew the When I next saw Simon, he had shaved his beard. In same people. the coming weeks, he would organize relief convoys of That supper was the last time I would see Simon in hundreds of trucks that carried blankets, tents, food and Turkmenistan. He and the other “humanitarian mer- medical supplies. The Afghan truck drivers and scores of cenaries” all went separate ways: some back to day laborers that loaded the supplies by hand became his Afghanistan, some to Europe to spend a short army of humanitarian mercenaries, as USAID Christmas holiday. I went home myself for the Administrator Andrew Natsios saw for himself during a Christmas holiday, feeling more in the spirit of the sea- swing through the region. son than I could ever remember. ■

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REMEMBERING 9/11 IN MANHATTAN

n retrospect, Sept. 10, 2001, has an idyllic ately went to the phone and called every number I had glow. It was Foreign Affairs Day, and the for Main State, but no one answered. Dean Acheson Auditorium was filled with people eager to see Secretary of State Colin “You Will Remember This Day” Powell preside at the opening ceremony. My old roommate was posted to Tel Aviv as an eco- Children of award recipients in the front nomic officer, so I called his parents to tell them I was row leaned over their parents and fidgeted. well. When his father asked me how we were taking it, I The FBI agents to my left discussed four assured him I was in a safe area. That was when I real- new hires. Active-duty officers slipped in to listen. The ized that I did not want to remain safe in my apartment. Itides of diplomacy were rhythmic. The sky was clear. So I went to a nearby hospital to help, passing people At the end of the day I stopped by the coatroom, clustered around window displays of flat televisions. As I where I spoke with a tall volunteer of advanced years. crossed Lexington Avenue I heard a woman say to her She inquired as to where I was post- trailing daughter, “You will remem- ed. I told her that my office was at ber this day; you will remember this N EYEWITNESS ACCOUNT the World Trade Center in New A day.” York. “I didn’t know we had an OF WHAT SEPT. 11, 2001, The hospital had closed off the office there,” she said, peering at me WAS LIKE IN NEW YORK street, but a security guard moving through thick glasses. CITY REMINDS US OF HOW barricades into place said they were I took the evening bus back to receiving injury cases. He expected PROFOUNDLY THE WORLD New York, arriving just after mid- it to get worse. I told him I was night on Sept. 11. As I always did CHANGED THAT DAY. going to push on, so he filled me in. when returning to the city, I looked The trains were down. The phones at the Twin Towers, not knowing it BY DAVID CASAVIS were dead. The bridges and tunnels would be the last time I’d see them. were sealed. There was no way into I slept later than usual the next Manhattan and the city was empty- morning. When I woke I called a friend who worked ing out. downtown. In the middle of our conversation there was For the first time in my life I saw American refugees. a commotion. He told me that a plane had just crashed They were streaming north in overwhelming numbers. into the World Trade Towers. “Oh, some kid in a Piper The buses were so full that people hung on for dear life Cub,” I sighed. as I had seen them do in Pakistan and Kenya. Yuppies “No, no,” he replied. “This is something else. bearing portable computers poured north. Tourists Everybody is by the window. I’ve got to go. I’ve got to queried helpful locals who directed them off the island. go.” And he was gone. Nine blocks further south was Hunter College. My routine upon awakening is to turn on the radio Classes had adjourned. Everyone was trying to figure out while in the kitchen. Soon after I tuned in, another plane how to get away. One student sitting on a huge concrete hit the second tower. I continued to listen, frozen in flower container said to someone on the other end of a place, as the news came that the Pentagon had been hit, cell phone, “There are no Twin Towers anymore.” followed by a report (inaccurate, thank God) that a car I passed the China Institute. Two employees were bomb had gone off at the State Department. I immedi- standing outside. A man, moustachioed, large-bellied,

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and middle-aged, said, “This is Pearl For the first time in my life When I arrived at Ground Zero Harbor. Where were they? We were the police were setting up barriers. asleep. Didn’t anyone figure this I saw American refugees, Their priority was getting everyone out?!” The other, a Chinese woman, out. I asked about the federal work- clasped her hands and appeared to streaming north in ers at Six World Trade, one of those be in prayer. empty questions one asks when I kept thinking of my colleagues at overwhelming numbers. there isn’t anything else to say. One and Two World Trade Center. I One police officer said that they was sure that they had all perished. were taking volunteers. There was My own building, Six World Trade Center (the Customs nothing else to do but dig my people out. So I went to House), I assumed was covered with debris or damaged. the collection point. Third World patterns emerged as I pressed south There I found a bevy of construction workers who had against the human tide. Men in suits sat at tables at open- spontaneously come to volunteer. They were mixed in air bistros. Refugees flowed north on one side of the with locals who had brought shovels, ropes and picks. All cafe’s sidewalk barrier. The summer sun reflected off the I had brought was a bag of cough drops. “Where are you sparkling water, served from a pitcher, in the absurdly from?” one husky guy asked. disparate scene on the other side. “I walked here from 82nd Street,” I said. “I used to Strangers exchanged information as eagerly as if they work at Six World Trade, the Federal Building. I don’t were talking about a huge, oncoming storm. Storekeeps know if anyone is left in there. I came to help.” stood at their doorsteps. Here and there people clus- “Well,” the man held his hand out to shake mine, “you tered around radios. Magazine and tobacco shops turned walked all the way here from 82nd Street? You can join on the news stations and blared them out to the street, us.” The camaraderie was overwhelming. I began to though much of what we heard was unsubstantiated weep. speculation. Like any government activity, volunteering is about ‘hurry up and wait.’ So I did. The reason, this time, was “Why Us?” evident. Number Seven was burning. When I reached midtown the buses were not so We were north of Number Seven, the northernmost crowded. I managed to hop onto one going south. I kept building of the World Trade Center, which was hard by hearing variations on the same refrain: “Why us? Why do Number Six. We could not be deployed until the fires of this to us?” A Pakistani quietly said, “We come here to Number Seven were either put out or the building col- work. We come here for a better life, to educate our chil- lapsed. Whole squads of men were wiped out when the dren.” towers fell. Secondary explosions punctuated the rescue At the end of the line, north of New York University, efforts. It was no use sending more men in until the sit- the scene changed drastically. Soot appeared as I scam- uation stabilized. Those still alive under the rubble pered across Houston Street. For the first time I heard would have to wait. military jets over Manhattan. The staging area filled up as we waited. Dogs were The billowing cloud was enormous. Uptown I could brought in. A truck with klieg lights backed in. After a see the smoke against the Chrysler Building as I walked. long day, it was going to be a long night. Then the cloud became a huge backdrop to a flag flying Displaced persons wandered in. They added to the high atop a downtown building. Wending my way confusion. One poor fellow only had a pair of shorts and through once-familiar streets grew more difficult as the a bandanna. He lived a few doors down, but was kept cloud got thicker. I used the flag to chart my course. away from his apartment by the police cordon. One fellow showed up in a neatly pressed business suit. David Casavis, a frequent book reviewer for the He asked what he could do. I said this was where the con- Journal, formerly worked for the Department of struction volunteers were. He said, “I’m just a pencil Commerce in New York City. He now works for the pusher.” Then he took his tie off. I suggested he go home Department of Homeland Security. and change, but he wouldn’t hear of it. He didn’t care

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what happened to his clothing. He was going in with us. down. I took her by the shoulder and said, “Get some Indeed, I had walked out of my house in my dress work clothes. Change. Come back. Volunteer. The best shirt. I had jeans but I had no hat or bandanna. I said to thing is to do something about it.” Something inside had one fellow who had brought his working gear that I taken over. After that I wasn’t able to weep again for a should have worn another shirt, though I didn’t mind los- month. ing the one I had on. “Well,” he said thoughtfully, “there Another woman stood by, her hand over her mouth. are people who lost a lot more than that this day.” She was in a summer dress. She was also badly shaken. “At least you have a shirt,” the shirtless displaced per- When I addressed her, she replied with a German accent. son chimed in. We all laughed. It was the only comic She was a tourist who had planned to go to the top of the relief any of us would have that day. We found him a World Trade Center first thing that morning, but had left shirt. her key back in her midtown hotel. So she returned to get it. By the time she got to Grand Central Station, the “Do Something” World Trade Center was burning. She had escaped by They kept us waiting so long that I decided to get some- the narrowest of margins. thing to eat. A Greek diner, just outside of the police cor- St. Vincent’s Hospital set up a triage unit and briefed don, was furiously cooking and serving up food through the us on how it would work. They posted themselves at the whole ordeal. There I sat next to a lady who, like so many, end of a street leading directly to the towers, the better to could not get home. Like the rest of us she was upset. receive the dead and wounded. I asked the hospital That was a turning point. I hardened as she broke workers for a face mask, as did my companions.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 65 F OCUS

The laborers I was with kept ask- I asked about the federal pick-and-hammer crew without ing me where I got it. They were explanation or ceremony. It wasn’t right to ask. No one had prepared workers at the World until we were preparing to board anything. An emergency coordinator donated trucks and don hard hats by the hospital area kept calling for Trade Center, one of those that I told one of the contractors that construction workers. I grabbed him I hadn’t done anything like this for 15 and pointed, shouting “There they empty questions one asks years. (And I was long in the tooth are, there they are!” for it back then, too.) The laborers, professionals all, when there isn’t anything As we waited, the reporters start- were sitting in the shade of a build- ed to infiltrate us, and we jeered ing. They were resting up because else to say. them. The steelcutters saw the they all, each and every one, knew reporters as parasites and oppor- they’d need every ounce of strength tunists. They were daytrippers from they could muster once they got to what was now a the safe world. This was not the Roman arena. We all moonscape. “If you want construction workers,” I said, just wanted them to go away so we could get on with it. pointing, “There! There they are.” When I lined up with a tall man to collect hammers The volunteer sign-in procedure was probably the and picks he said to me, “What’s the sense? You are going best-run aspect of the staging area. Some men took our to die anyway. If you are going to die, you might as well names, addresses, and next of kin (in the event we didn’t die helping someone.” make it). Women hung signs up directing people on how Number Seven was in its death throes. The word to sign-in. St. Vincent’s hospital hastily distributed went out that it was coming down. We all wanted it gone appeals for blood donors. One man came up to an so we could get survivors out before nightfall. I walked impromptu coordinator with a clipboard asking where to an open road to watch the inferno. the sign-in center was. The clipboard coordinator just It looked like those demolition clips I had seen while looked at him. “He’s the sign-in center!” I exclaimed. channel-surfing. The windows blew out. The skyscraper imploded. Then the backdraft hit. The cloud billowed “Hey, You! Big Guy!” down the urban canyon. It swelled and a strong wind One fellow with a bullhorn began organizing us into blew. An overweight policeman was in a dead run just construction, search and rescue, food service, and med- ahead of the cloud. We scattered. ical groups. “All you big guys! Over to construction,” the I ducked into the corner of an apartment building. bullhorn called out. “Everyone over 5’9” and over 225 The fellow next to me hid his face against the glass fram- pounds, in the back! All you strong guys over there!” ing. “Not a good idea,” I thought, remembering the one One of the drawbacks of looking younger and air-raid drill I participated in as a kid. You never lean stronger than you are is that you don’t get any breaks. against glass. It could splinter out into your face. I haven’t turned gray yet. I must appear robust There was a second backdraft. That was when I because every time I tried to join the search and rescue decided to act like a New Yorker and stop running. line the man with the bullhorn shouted, “Hey, you! Big Ashamed of myself, I deliberately walked through the guy! Over there!” second dust cloud. For the rest of the day I would be known as Big Guy. Whenever the fire department drove by there was I joined the steelcutters, as they would be called later that applause. But when the firemen cycled off, they were night. These volunteers were professional construction plainly exhausted. They were covered with white ash. I workers. Thanks to my longtime association with New watched them as one would watch tired troops trudging York real estate, I knew a bit about them. They were peo- to the rear. After that I looked at the billowing cloud with ple from the laborers’ union, welders, heavy equipment apprehension. The more so after the word was passed to drivers, and even an electrician. me, “It’s not going to be nice. It’s going to be pretty gris- We were further broken out by those who knew how ly. You’ll pick up an arm here, a leg there. There’ll be a to organize work crews. “Big Guy” was assigned to a lot of dead bodies.”

66 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 F OCUS

“Save Those You Can” husky guy and I picked up our gear and followed them in. Another man said, “Careful how you dig. You have to It was dark when I quit. The city looked abandoned have the stomach for it.” when I got to a working subway. I don’t know how far I Still another said, “Just dig. Move the rubble. You walked to get there, but it must have been two miles. see a body, you call out,” gesturing with his left hand as Intermittent sirens dotted the night. The absence of he spoke. “Let the professionals handle it.” activity asserted itself, hanging in the air. One of the pick-and-hammer crew, a kid not half my The train back was nearly empty. Unlike the people age, looked at me in horror. “We are going in like this? of downtown, uptown stayed put. So I was a rare find No masks?” when I returned. As I slumped in my subway seat, a I reached into my pocket and pulled out the bag of British tourist asked how it was going. “I’ve had better cough drops. “Take some. Wait until you gag. Then days,” I replied. put it in your mouth. They’ll have to last all night,” I My old office doesn’t exist anymore, nor does the said as I rationed them out. world as I knew it on Sept. 10, 2001. For me they both When they finally got us moving, the bullhorn had belong to a bygone era. Scorched earth divides us. donned a white jumpsuit. He pulled us together shout- In the three intervening years I have attended every ing, “If you are drinking alcohol, go home! If you are Foreign Affairs Day held at Main State, stopping by the on drugs, go home! If you have asthma, go home!” coatroom to inquire into the whereabouts of a tall “I love this country!” a stringy welder at the head of woman, of advanced years, with a thick pair of glasses. the construction volunteers ferociously bellowed. If ever I find her, I will tell her that we still have an “We’re not here for that,” the white jumpsuit shout- office in New York. ■ ed back. “We are here to save a child from under the rubble. We are here to save a woman who has been trapped.” Over the last few hours young people of college age had made their way to the staging area. The women were in skimpy attire. Many were covered with just enough material to make two bikinis. They were sent to the back of the search and rescue line. The boys SERVING THOSE WHO with jeans hung around the steelcutters, eager for SERVE AMERICA action. S I N C E 1 9 7 1 Finally we walked off to the trucks. The steelcutters 2004 represents our 34th year helping were the first volunteer shift. The boys in the waiting to maintain America’s fleet of vehicles area cheered us on, doubtless in hope of getting under throughout the world. All of us at D & M way themselves. I talked to the first laborer I met. consider it an honor to have worked with Shovel in hand he said, “It’s still burning. If you hear all of you through these years. someone screaming, try to get him out. If he’s too deep We are aware of the importance of your official and private under, ignore him. We’ve got to stop the fire from vehicles, forklifts, generators, tools and equipment. spreading first. We’ve got to save those we can. This is We look forward to continuing this service in a triage.” professional manner. All order was lost when we embarked. I had read We are here to help, just ask! about the exuberance of young men going to war for Gary Vlahov the first time. Here it was. The boys could not restrain themselves. They broke ranks and ran for the donated www.dmauto.com trucks. They grabbed whatever was available, climbed (516) 822-6662; FAX: (516) 822-5020; E-mail: [email protected] on board, and rode into the holocaust. I had read descriptions of this phenomenon at the out- break of wars, but never thought I would see it. The

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 67 APPRECIATION

Hume Alexander Horan 1934 – 2004

ume Alexander Horan, 69, retired by the verbal rebuke, and was again ordered to deliver the Foreign Service officer and message. Soon after he did so, he received a telegram ambassador to five Middle from the department informing him that “a message dif- Eastern and African countries, ferent in tone and substance” had also been communicat- died of prostate cancer at Inova ed to the Saudi Embassy in Washington. “My goose was Fairfax Hospital in Falls Church, cooked,” he told The Washington Post in 2002. Adding Va., on July 22. insult to injury, State then directed Amb. Horan to per- A man whose conscientiousness and compassion were as sonally present the U.S. request for approval of his suc- Hdeep as his prodigious intellect, Hume Horan was a fluent cessor, after which he was recalled to Washington. speaker of Arabic and spent most of his career in the Middle Despite that experience, Amb. Horan retained an opti- East during some of the region’s most turbulent times. He mism and idealism about the diplomatic corps. In a 1992 spent six months in 2003 as a senior counselor article for The Washington Post, he wrote that with the Coalition Provisional Authority in Foreign Service officers “are the infantry of Baghdad, dealing with religious and tribal affairs American diplomacy. We’ll never be able to dis- — an experience he wrote about in the March pense with them. Consistently to work at our 2004 Foreign Service Journal (“Restoring a national purposes, someone has to be on the Shattered Mosaic”). scene, speak the language, meet with the leaders, Wide-ranging as Amb. Horan’s career was, make the argument and report back — saying he is probably best known to the general pub- what he or she thinks we should do.” lic for the circumstances of his 1988 departure Amb. Horan was a native Washingtonian from his ambassadorial post in Riyadh, just whose mother, Margaret Robinson Hume, nine months after arriving. In the spring of came from a prominent family and whose that year, the United States discovered that Saudi Arabia father was Abdollah Entezam, an Iranian diplomat who had bought and accepted delivery of medium-range bal- served as foreign minister long before the 1979 downfall listic missiles from China. Amb. Horan was instructed to of the shah. They divorced when he was 3, and his moth- make a strong demarche to King Fahd about the unac- er remarried Harold Horan, a newspaperman. ceptability of the missiles. He served in the Army from 1954 to 1956, graduated Ever since his previous tour as DCM in Riyadh (1972- from Harvard College in 1960 and joined the Foreign 1977), Amb. Horan had cultivated his own contacts Service. He received a master’s degree from Harvard’s throughout Saudi society. Knowing that this had already Center for Middle Eastern Studies in 1963. annoyed the ruling family, he called Washington to be Mr. Horan requested a first assignment in Baghdad, a sure officials understood how offended the king would be choice unusual enough that the under secretary for man-

68 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 agement remarked, “I don’t get many volunteers for Horan of Annandale and Jonathan Theodore Horan of Baghdad.” Mr. Horan studied Arabic in Beirut and later Boston; a sister; and four grandchildren. in Libya. From 1966 to 1970, he served as Libyan desk A memorial service was held for Amb. Horan at officer in Washington during Mu’ammar al-Qadhafi’s Georgetown Presbyterian Church on July 30, after which coup and as a congressional fellow to Rep. Brad Morse, he was buried at Arlington National Cemetery. R-Mass., and Sen. Edmund S. Muskie, D-Maine. In response to an AFSANET message announcing In 1970, Mr. Horan was assigned to Amman as a polit- Amb. Horan’s passing, the Journal received many tributes ical officer, and from 1972 to 1977, he was deputy chief of from friends and colleagues, all of which have been for- mission in Jeddah (then the site of the U.S. embassy in warded to his family. In fact, we received so many contri- Saudi Arabia). After several years in Washington, culmi- butions that we will run more next month. nating in an assignment as principal deputy assistant sec- — Susan Maitra, Senior Editor retary of state for consular affairs, Mr. Horan was named ambassador to the Republic of Cameroon and non-resi- HUMBLE YET GREAT dent ambassador to Equatorial Guinea in 1980. I would like to offer my condolences to the Horan fam- His next ambassadorship (1983-1987) was to Sudan, a ily and the Foreign Service family in general on the death time that included the rescue of Ethiopian Jews and their of a great officer and an experienced diplomat, the late transport to Israel, terror attacks against the embassy and Ambassador Hume Horan. the overthrow of President Gaafar Muhammad al- The passing of Amb. Horan marks an important chap- Nimeiry. After that assignment ended, he spent 1987 as a ter in the history of the U.S. Foreign Service. He took diplomat-in-residence at Georgetown University and then with him a wealth of information and experience that will was assigned to Saudi Arabia. After the incident in be hard to replace. Riyadh, he was recalled to Washington, where his assign- I am a Foreign Service National employee in the politi- ments included service as president of the American cal section of the U.S. consulate general in Dhahran, Saudi Foreign Service Association from 1991 to 1992. Arabia. I have good memories of Mr. Horan, particularly In 1992, he was named ambassador to Cote d’Ivoire, his tenure as United States ambassador to Saudi Arabia in which he described as “a pleasant and stable country, at least 1988, when I had the good fortune and honor of working until the death of the country’s founder.” Upon returning to under his expert guidance during several visits by the the United States, Amb. Horan spent a year at Howard Secretary of Defense to Dhahran. While he was a real pro, University as diplomat-in-residence, directed the African Amb. Horan was also a humble man who led by example. I training program at the Foreign Service Institute and then and my colleagues found him quite accessible, knowledge- retired from the Service in 1998. able about his work, and willing to go the extra mile to help Amb. Horan was a longtime member of Chevy Chase his staff. Presbyterian Church and, more recently, the Georgetown I was also struck by his linguistic skills, particularly his Presbyterian Church. He was an enthusiastic cyclist who fluency in Arabic. I do not believe I have met an FSO, or toured in France, New Zealand and many parts of the any American, for that matter, who spoke Arabic as flu- United States. His many other interests included French, ently as he did. Nor do I believe that I will ever meet one. German, Spanish and Arabic literature; he translated a I recall that most of his conversations with me and others, novel and several short stories from Arabic into English. He among them several Saudi officials, including the Saudi was also the author of a novel about the Foreign Service, To ambassador to the United States, Prince Bandar, were the Happy Few (Electric City Press, 1996), and served as an entirely in Arabic. In my book, that’s an accomplishment analyst on Middle Eastern affairs for MSNBC, NPR, the that few people can ever hope to match. BBC and FOX News. May his soul rest in peace. For his work with the Coalition Provisional Authority Ibrahim M. Nur in Baghdad in 2003, he received the Department of Political/Economic Specialist Defense’s Distinguished Public Service Award, the American Consulate General Pentagon’s highest honorary award for private citizens. Dhahran, Saudi Arabia His marriage to Nancy Reinert Horan ended in divorce. Survivors include his wife, FSO Lori Shoemaker AMONG OUR BEST of Annandale; two children from his second marriage, Ambassador Hume Horan was among our legendary Michael Harry Horan and Elizabeth Hume Horan, both ambassadors. He had enormous intelligence, good of Annandale; three adult children from his first marriage, humor, grace under fire and an incredible knowledge of Alexander Hume Horan of San Diego, Margaret Bond Africa. He was a scholar, teacher and diplomat — an

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 69 exceptional leader and example for minus our kites, and allowed to African post was a misdirection of the Service. return to Khartoum. State Department resources. But Although I had often heard about I wonder if Hume ever put on his before I knew it, Hume was meet- Amb. Horan from many of my col- resumé that he once spent time in a ing with the imams and religious leagues, I had not met him until he jail cell in Sudan? leaders of Cote d’Ivoire’s Muslim inquired whether Embassy Conakry Gary E. Leinen community, amazing them with his would have any objections to a for- Interim CTO knowledge of Arabic (sometimes mer ambassador coming to post with USAID/Sudan Field exceeding their own), the Quran, his Foreign Service spouse. I was Office and Arabic history and literature. surprised and touched that he would Nairobi His understanding of the impor- make the effort to ensure that the tance of Islam in that country, I embassy was comfortable with his A PHENOMENAL MIND dare say, has not been equaled since presence in Conakry. This kind of It’s hard to be concise about an in our Service. concern for others, however, was individual as multifaceted as Hume Unfailingly optimistic, always typical of Hume Horan. Horan, especially after knowing him polite, considerate and gracious to his Amb. Horan will long be remem- 31 years, but I’ll do my best. staff, Hume Horan showed that one bered as among the best of our Serving with Hume was like can rise to the peak of our Service Foreign Service ambassadors. being in a nonstop graduate seminar. with none of the aggressive, combat- Vicki Huddleston The intellectual stimulation was ive career instincts we sometimes see Ambassador never-ending. His ability to see con- in those who rise to the top. Profound Bamako nections in facts and events that knowledge, insatiable curiosity, an ordinary mortals would never notice incredible reading speed (combined KITING IN KHARTOUM was phenomenal. His linguistic abil- with an equally rapid if undecipher- I worked at USAID in Khartoum ities were equaled by few. His abili- able handwriting), and unending when Hume first came to Sudan as ty to coin the apt phrase, dipping courtesy were the keys to his success. the U.S. ambassador in the early into his internalized version of The Foreign Service will have few like 1980s. One of his initial experiences Bartlett’s Quotations, enriched by a him. was accompanying an embassy-orga- multilingual Roget’s Thesaurus, Charles O. Cecil nized outing to fly kites at a small hill never flagged. I have seen him Ambassador, retired south of the capital. We were all launch instantly into energetic and Alexandria, Va. having a great time enjoying the entertaining conversation in French, wind and flying our kites from this Arabic or Spanish, either at recep- PROBLEM SOLVED “bump” in the dreary landscape tions or on receiving visitors in the I was USAID mission director in when suddenly we were all arrested. office, peppering his talk with Cameroon during Amb. Horan’s It seems we were inadvertently adja- proverbs and quotations to the assignment there. While I certainly cent to a military camp. (I doubt we amazement and amusement of his share the professional respect and would have been spotted except that interlocutors. Added to this, he read personal affection sure to be one of the group went to answer the German newspapers for pleasure expressed by others, I would like to call of nature on the “other side” of when he could get them. comment on a little-known event the hill.) I first worked for Hume as pol- that reflects his sensitivity and kind- We were all carted off to the base mil officer in Jeddah in the early ness. and placed in a large cell that must 1970s, when he was DCM. The fact As it happened, the American have been part of the base prison. that he filled that position for five presence in Cameroon had an unusu- Hume kept his cool! He did not years, serving three ambassadors, ally large number of Jewish members announce to our captors that he was testifies to how greatly his knowl- during the early 1980s. Several were the U.S. ambassador; instead, he edge and his language ability were devout and wished to organize ser- calmed everyone and just listened to valued by the chiefs of mission he vices for the benefit of the local what the Sudanese were saying served. Jewish community. In the course of about us. Being fluent in Arabic and Many years later he asked me to one of my regular meetings with surmising what the Sudanese be his DCM in Abidjan. I jumped Amb. Horan, I mentioned that there planned to do worked to all our at the chance, despite my thought was no Torah in all of Yaoundé, and advantage and we were released, that sending two Arabists to a West wondered aloud how we might be

70 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 able to get one. He immediately affection and admiration of his col- offered to write to a colleague in leagues. Israel about the problem. Stan Zuckerman Within a few weeks, courtesy of FSO, retired Embassy Tel Aviv, a Torah arrived in Mclean, Va. Cameroon. Apparently made for traveling, it was about one-quarter REPAYING A the size and weight of a normal vol- DEBT OF GRATITUDE ume, but complete in every way. Hume Horan’s distinguished and Services could be held with a proper varied career attests to his extraordi- Torah! nary dedication and commitment to Ronald D. Levin the Foreign Service. Indeed, his pro- FSO, retired found understanding of the Arabic Longboat Key, Fla. language and Muslim world is legendary. A SOURCE OF INSIGHTS Less well known are his service as Hume Horan was the most president of AFSA from 1991-92 intriguing member of the 20th and as ambassador to Cote d’Ivoire class of the Senior Seminar, 1978- from 1992-95 — the two assign- 79. Of obvious brilliance, he was ments where our paths crossed. As always a source of wonderful AFSA president he recruited me to insights, and he was capable of be a candidate on his slate. And on rolling off long, vivid monologues, the eve of his assignment to Abidjan as if they had been written in in 1992, we met over dinner to dis- advance. One I will always remem- cuss the country where I had served ber occurred at a dinner party fol- some 34 years earlier. lowing the collapse of the Iraqi In a June 1992 letter, Hume asked army, which brought an end to the the fundamental question that arises first Persian Gulf War. We asked often in a career: “Why does one join Hume, whose son was a tank com- [the Foreign Service] … or better mander in the Mother of All put, why does one stay?” He Battles, to tell us what the Middle answered his own question as follows: East would be like as the scope of “An important part of that answer is the defeat became known. I can- the company and friendship of other not quote his words verbatim, but Foreign Service people. It is they without missing a beat he held us that make up the community we live all rapt as he painted an unforget- in — that ‘global village’ we inhabited tably vivid description of young before Marshall McLuhan devised men walking through dusty, the term ... All that is good about our unpaved streets under gray skies, experience was there ... the discussion kicking stones in sullen anger, curs- of exciting events and interesting peo- ing the day they were born, feeling ple (past and present).” He conclud- the defeat as if it were their own, ed: “We are thankfully in your debt.” and looking forward to a future It’s particularly appropriate that without hope. Every observation, we now record our deep debt of in retrospect, was on the mark. gratitude to Hume Horan for the Hume was an uncommonly seri- selfless dedication of his prodigious ous and reflective man who also had talents to the service of the country a well-developed appreciation for — and the world. the absurd. In a bureaucracy in Donald R. Norland which that was not always a wel- Ambassador, retired come attribute, he won the respect, Washington, D.C. ■

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 71 AFRICAN-AMERICAN CONSULS ABROAD, 1897-1909

AT LEAST 20 BLACK CONSULS SERVED DURING THE REPUBLICAN ADMINISTRATIONS OF WILLIAM MCKINLEY AND THEODORE ROOSEVELT, WITH EIGHT OF THEM REMAINING ABROAD FOR A DECADE OR MORE. HERE ARE SOME OF THEIR STORIES.

BY BENJAMIN R. JUSTESEN

ver since the Reconstruction era, when ures are scarcely known (partly because many of their posts President Ulysses Grant appointed the no longer exist, long ago absorbed into larger consulates and first black U.S. envoys to Haiti and embassies). But several of them have dramatic stories high- Liberia, African-American diplomats ly deserving of inclusion in the annals of diplomatic history. have represented the United States with distinction abroad. To the limited extent Sharing the Spoils that diplomatic historians have recog- Almost from his first week in office, Pres. McKinley nized these men’s contributions and achievements, attention was besieged by crowds of Republican applicants for con- Ehas traditionally been paid to the small number who served sular positions and other federal patronage jobs, after the as U.S. ministers — precursors of ambassadors — to those four-year Democratic hiatus under Cleveland. African- two nations. American office-seekers were especially persistent, visit- Yet the last decade of the 19th century and the first of the ing the White House on nearly a daily basis in March and 20th also found African-Americans performing consular April 1897, according to “At the White House,” a column duties at more than a dozen foreign posts, both in indepen- in the Washington, D.C., Evening Star. They were well dent nations like Brazil, France, Honduras, Nicaragua, aware that only a few applicants could receive the presi- Paraguay, Russia and Venezuela, and in a number of dential favor they sought, due to the limited number of European colonies in Africa and the Caribbean, including posts available. Even a strong recommendation by the the Danish and French West Indies, Jamaica, Madagascar, nation’s only black congressman, Rep. George Henry Senegal and Sierra Leone. In all, at least 20 black consuls White, R-N.C., was not enough, as Capt. John Leach, rec- served during the Republican administrations of William ommended for the consulship at Victoria, British McKinley and Theodore Roosevelt, between 1897 and Columbia, discovered. 1909, with eight of them remaining abroad for a decade or Perhaps the most celebrated failure was that of Chicago more. politician and journalist Cyrus Field Adams, a much-touted One consul trained an African queen in the equestrian candidate for a high diplomatic post. Adams sought arts and later became a fixture in French society circles for appointment in June 1897 as the first black U.S. minister to two decades; another, in his seventies, helped trap wild ani- Bolivia, boasting exceptional linguistic skills — he spoke flu- mals for shipment to the U.S. national zoo. A third held off ent Spanish and three other languages — and strong rec- rebel troops until U.S. troops could arrive to protect a ommendations. But his resumé could not overcome histor- Central American president from being overthrown, while a ical and political obstacles. McKinley was keenly aware that fourth received commendations from foreign governments the 1894 nomination by Grover Cleveland of Charles Henry for humanitarian and collegial efforts during two Asian wars. James Taylor (1856-1899), briefly minister to Liberia in Almost all were college graduates, many with profession- Cleveland’s first term, to head the U.S. mission to Bolivia al degrees. A century later, however, these pioneering fig- had ended badly — Senate opposition had forced Taylor to

72 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 withdraw and settle instead for the Recordership of Deeds one of McKinley’s last consular appointments before his for the District of Columbia. McKinley had no desire to death by assassination. In 1904, Hunt returned home on repeat history. leave to marry Ida Gibbs, who had once urged her father to Adams’ quest led to no comparable consolation prize, hire him, and the pair lived abroad for the next quarter-cen- although he later became assistant register of the U.S. tury. An accomplished horseman, Hunt had already gained Treasury. Also unsuccessful was Bostonian C. H. Kemp some renown by reportedly teaching the Malagasy Queen Spurgeon, who sought a West Indies consular appointment Ranavalona III to ride. from McKinley in 1897. Spurgeon’s favorable comments, After their 1906 transfer to Saint-Étienne, the Hunts however, on his treatment by State Department officials became popular social leaders for 20 years in the French during his consultations were duly reported by the Evening community, before a final series of briefer postings in Star: “I can say without fear of Guadeloupe, the Azores and challenge, that the gentlemen I Liberia. Hunt retired in 1932, have met in the State As soon as he took office, living quietly thereafter with his Department and other public wife in Washington, D.C. officials stand second to none President McKinley was besieged Richard Theodore Greener for courteous and gentlemanly (1844-1922), a native of Phila- conduct. Such officials must by crowds of Republican delphia, was the first black stu- cause the nation to be looked dent to graduate from Harvard. upon with respect. It makes one applicants for consular positions He later became dean of feel proud to be an American, the Howard University Law either by birth or adoption.” and other federal patronage jobs. Department. Financial difficul- But other candidates were ties impelled him to seek a con- successful in approaching African-American office-seekers sular appointment in 1898, while McKinley and went on to living in New York. But he prominence: were especially persistent. declined his first post — Bombay Mifflin Wistar Gibbs — as “not acceptable,” apparent- (1823-1915) was an influential ly due to reports of a bubonic Arkansas politician and lawyer plague epidemic there. Re- who served as U.S. consul in the Madagascar seaport city of assigned to Vladivostok, his original title as consul was adjust- Tamatave (now Toamasina) from 1898 until 1901. (Gibbs ed to commercial agent at the Russians’ request. During a was just one of at least 10 black consuls appointed during highly regarded seven-year stay, Greener oversaw the inter- McKinley’s first year in office.) The Oberlin College gradu- ests of vacated diplomatic missions during the Russo- ate and longtime federal officeholder, 74 at the time of his Japanese war and earned a decoration from the Chinese gov- appointment, was one of the oldest men ever to serve as ernment for famine relief efforts in North China after the consul, but remained energetic, at one point helping to trap Boxer Rebellion. wild animals on the island for shipment back to the U.S. Unsubstantiated charges of improper conduct forced his national zoo. dismissal in 1905, however, and despite strenuous efforts to Gibbs resigned his consular commission in mid-1901, gain a formal hearing, Greener never managed to clear his reportedly for reasons of ill health, but only after securing name or return to service. Considered one of the most bril- the appointment of vice consul William H. Hunt as his liant black intellectuals of his generation, Greener wrote replacement. extensively in retirement, supporting women’s rights and William Henry Hunt (1869-1951), a New York Irish liberation, among other causes. Republican, began as a secretary to Gibbs, became vice con- Other McKinley appointees in 1897 and 1898 included sul and succeeded his future father-in-law as consul in Mahlon B. Van Horne (1878-1910) of Rhode Island, a Tamatave in 1901 — the first post in a 31-year career, and Lincoln University graduate who served as consul for six years in St. Thomas, Danish West Indies; John N. Ruffin Benjamin Justesen, a former Foreign Service officer, is the (dates not available) of Tennessee, consul for a decade in author of In His Own Words: The Writings, Speeches, and Asuncion, Paraguay; attorney Louis Addison Dent (1863- Letters of George Henry White (iUniverse, 2004) and 1947) of Washington, D.C., named consul for a second time George Henry White: An Even Chance in the Race of Life in Kingston, Jamaica, after a brief posting there late in the (Louisiana State Press, 2001). Harrison administration; and Dr. John Taylor Williams

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 73 (1859-1924) of North Carolina, con- three years under Cleveland, went to sul for eight years in Freetown, Sierra a Caucasian applicant; likewise, Saint Leone. Three other trained physi- After McKinley’s initial Paul de Loanda, Portuguese West cians selected as consuls by McKinley Africa, where Henry Francis were Dr. George H. Jackson (b. flurry of black Downing (1846-1928) of New York 1877) of Connecticut, who was had served for a year under Cleveland assigned first to Cognac, France, then diplomatic in the 1880s. And those who were quickly transferred to La Rochelle; selected sometimes had to settle for a Dr. Lemuel Walter Livingston appointments, the second or third choice. Livingston, (1861-1930) of Florida, consul for two for example, had initially sought the decades in Cap Haitien, Haiti; and emergence of the “lily consulship in Valparaiso, Chile, but Dr. Henry Watson Furniss (1868- adjusted well to Cap Haitien, where 1955) of Indiana, consul in Bahia, white” Republican he served for more than two decades Brazil, until 1905, when he was and remained until his death. named U.S. minister to Haiti. faction ended the surge. In addition, attorney Campbell L. A “Lily White” Resurgence Maxwell (d. 1920) of Ohio, first After McKinley’s initial flurry of appointed consul in Santo Domingo black diplomatic appointments — in 1892 by President Harrison, was had stubbornly hoped to be retained which also included New Jersey edu- recalled to service in 1898 by by McKinley despite political differ- cator William Frank Powell (1848- McKinley and elevated to consul gen- ences. 1920), U.S. minister to Haiti and eral, a title Maxwell retained for six Not all posts previously given black chargé d’affaires in Santo Domingo years. There he replaced Grover consuls received them again under from 1897 to 1905, and North Cleveland’s consul, African American McKinley, however. Santos, Brazil, Carolina clergyman Owen Lun West attorney Archibald H. Grimké where Henry C. Smith (dates not Smith (1851-1920), U.S. minister to (1849-1930) of Massachusetts, who available) of Alabama had served for Liberia from 1898 to 1902 — the

74 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 surge of applicants subsided. The Most notable among the new con- emergence of the “lily white” Repub- suls was Christopher Harrison lican faction, followed by McKinley’s Of all the appointees Payne (1848-1925) of West Virginia, assassination in September 1901, a minister, editor and lawyer named in ended lingering hopes for a second during the 12-year 1903 to the consulship at St. Thomas, large round of African-American Danish West Indies. Payne, 55 when appointments. period, only four he succeeded Van Horne at St. New president Theodore Roose- Thomas, remained there for the rest velt, who depended heavily on the continued their careers of his life. After the U.S. government cautious advice of Booker T. purchased the islands from Denmark Washington, was generally apathetic into the 1920s. in 1917, Payne retired from federal toward black appointments. But service to practice law there, also act- Roosevelt retained many McKinley Two went on to serve as ing as prosecuting attorney and police appointees and made limited efforts judge in the capital, Charlotte Amalie. to appoint other black consuls during Foreign Service officers, Also appointed in 1903, Dr. G. Jarvis his first term. When he took office in Bowens (b. 1869), a Norfolk, Vir- 1901, the consular service was a vast, under the terms of the ginia, physician, became consul in far-flung operation, with 39 con- Guadeloupe, where he remained for sulates general, 255 consulates and 1924 Rogers Act. nearly five years. 23 commercial agencies. According Former Kingston consul Louis to a State Department report Dent, once a favored aide to Secretary described the next month in the of State James G. Blaine, sought to Evening Star, the consular service return to consular service in 1904. He had 1,100 employees, compared to a the Azores, he resigned six months had resigned the Kingston consulship work force of 99 for the department after Wilson’s inauguration. But in 1899, after an admirable perfor- proper. Johnson went on to fame as an attor- mance during the war with Spain, to Roosevelt’s most well-known ney, teacher, author and secretary of be appointed as D.C. Registrar of appointment was probably that of the NAACP. Wills. Offered an appointment with future civil rights leader James Both Johnson’s credentials and ref- less appealing geography this time — Weldon Johnson (1871-1938), a erences had been impeccable. But in Dawson City in Canada’s Northwest Florida native and attorney who some cases, the political patronage Territories — Dent accepted, but two entered consular service in 1906. associated with consular appoint- months later chose to resign rather Between 1906 and 1913, he served as ments made selection a riskier task. than proceed to post. Another 1904 consul in Puerto Cabello, Venezuela, The disgrace of Roosevelt’s first major appointment went to New York jour- and in Corinto, Nicaragua. During African-American ministerial appoint- nalist Jerome Bowers Peterson the Nicaraguan Revolution of 1912, ment, Dr. John R. A. Crossland (1860-1943), who became consul in he helped stall rebel fighters from (1864-1950) of Missouri — sent to Puerto Cabello, but resigned a year entering Corinto until U.S. military Monrovia in 1902 — may have damp- later. forces could arrive to shore up the ened his already limited enthusiasm Two early Liberian appointments regime of President Adolfo Diaz. His for black appointees. Crossland eager- below the rank of consul were also performance was highly rated, leading ly accepted the posting as minister to notable. In 1902, Roosevelt selected to his serious consideration for two Liberia, but his diplomatic career 25-year-old lawyer George Washing- more demanding posts outside the ended abruptly, just eight months ton Ellis (1875-1919) of Washington, Western Hemisphere (Goree-Dakar later, when a spicy local scandal D.C., later confirmed by the Senate, and Nice). forced his hasty departure and to succeed James Robert Spurgeon Johnson’s efforts to gain a replacement. His successor, Ernest (dates not available), the outgoing European posting, particularly after Lyon (1860-1938), a minister and legation secretary in Monrovia. Ellis his marriage, may have undermined naturalized U.S. citizen born of was induced to accept the post pri- his chances to continue as a consular African parents in Honduras, served marily because of his passionate inter- officer after the election of Democrat more creditably — and circumspectly ests in the ethnological, sociological Woodrow Wilson in November 1912; — as U.S. minister to Liberia for and linguistic characteristics of tentatively slated for reassignment to seven years, from 1903 until 1910. Liberia’s inland tribes. In addition to

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 75 official duties, he was allowed to con- Sierra Leone. duct lengthy expeditions into the hin- In 1906, Roosevelt also reas- terlands, sending back both a wide Teddy Roosevelt was signed Hunt to Saint-Étienne, while variety of specimens and well-regard- offering a lower-level appointment ed reports. Despite poor health, Ellis cautious in his to Edmond Autex Burrill (b. 1874) served with distinction in Monrovia of Washington, D.C., a recent grad- for nearly eight years. In 1903, appointments of African- uate of the Howard University phar- Roosevelt gave the title of vice consul- macy department, as vice consul in general in Monrovia to Alexander American diplomats, but Puerto Cabello, under Hunt. Priestly Camphor (1865-1919) of Transferred a year later to Saint- Louisiana, an American minister did retain many of Étienne, where he again served as already living in Liberia, where he vice consul under Hunt, Burrill served as president of the College of McKinley’s choices and resigned in 1912. West Africa. Camphor served in his Of all the appointees during the dual capacity until his 1908 return to appointed a few more. 12-year period, only four continued the United States; he was succeeded their careers into the 1920s. Two as vice consul-general by Texan John went on to enter formal careers as H. Reed (b. 1862), who served there Foreign Service officers, under the for seven years. terms of the 1924 Rogers Act legisla- Roosevelt retained several of Iowa as consul in Utila, Honduras. tion: Hunt and Yerby, who each McKinley appointees at their exist- Reassigned in 1908 to Puerto served a variety of posts before their ing posts, including Williams, Cabello, Wright remained in retirements in the 1930s. Terres Ruffin and Greener, whose tours all Venezuela until his 1917 retirement. died at his post in Haiti in late 1920, ended during Roosevelt’s second Also in 1905, Roosevelt elevated a remarkable four decades after term; Furniss (who would soon Furniss, then consul in Bahia, to suc- entering government service. receive a significant promotion); ceed Powell as U.S. minister to Carter remained in Madagascar Jackson, who returned to Cognac in Haiti, where he remained until until 1927, declining the appoint- 1908 and remained in France for a 1913. ment as U.S. minister to Liberia total of 16 years; and Livingston, In 1906, Secretary of State Elihu offered him that year by President whose Haitian posting ended in Root decided to reorganize the Calvin Coolidge. Assigned instead 1919. One of the few McKinley nation’s consular service, instituting as consul to Calais, France, Carter appointees not serving past 1904 an entrance examination and raising remained there until 1940. After a was Maxwell, who resigned after the annual salaries — ranging from brief wartime tour as consul at appointment of the first U.S. minis- $2,000 to $12,000 — in an attempt to Bordeaux, he returned in 1941 to ter to the Dominican Republic that attract a higher caliber of applicant. Madagascar, where he was promot- same year. Soon after Root’s recommendations ed to the rank of consul general In 1904, Roosevelt also made two were adopted, Roosevelt named three before retiring in 1942. significant innovations at Port-au- new black consuls: James Weldon Eventually their trail would be Prince, first by promoting the long- Johnson, who succeeded Peterson in followed by many more African- time vice-consul-general, John B. Puerto Cabello; James G. Carter (b. American Foreign Service officers, Terres (d. 1920) of North Carolina 1870) of Georgia, to succeed Hunt at gradually expanding career horizons — at post since 1880 — to the rank Tamatave; and Dr. William James well beyond Africa and the of consul, and then making history Yerby (1867-1950) of Tennessee, to Caribbean and their professional by assigning West Point graduate succeed Williams in Freetown. responsibilities into all functional Major Charles Young (1864-1922) Johnson’s next post was Corinto specialties. Gibbs and Johnson, of Ohio as the first black U.S. mili- (1909), while Carter remained at among others, penned compelling tary attaché. Tamatave until his 1916 transfer to autobiographies highlighting their During his second term, begin- Tananarive. Yerby moved on in 1912 adventures abroad. Yet the legacy of ning in 1905, Roosevelt appointed a to Dakar, Senegal, as the next post in these early African-American con- handful of new African-American a lengthy career including postings in sular officers remains a barely consuls, first selecting attorney La Rochelle and Nantes, France; explored, fascinating niche of Herbert Richard Wright (b. 1879) Oporto, Portugal; and Freetown, America’s diplomatic history. ■

76 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 PROMOTING DEMOCRACY

CAN A FOREIGN POLICY APPARATUS CONFIGURED TO FIGHT THE COLD WAR IMPLEMENT THE BUSH ADMINISTRATION’S NEW DEMOCRACY-LED U.S. FOREIGN POLICY?

BY AARON M. CHASSY

n November 2003, President Bush announced a During the year leading up to his announcement, State major shift in American foreign policy in several and USAID were preparing the joint U.S. Department of speeches both at home and abroad. He elevated State-U.S. Agency for International Development democracy promotion to a strategic priority, Strategic Plan, FY 2004-2009. Published last fall, before asserting that a new rationale would drive U.S. the president’s recent proclamation, the plan will serve as foreign policy in the Middle East, and by exten- these two institutions’ shared blueprint for achieving the sion the rest of the world. The United States three strategic objectives in the new U.S. foreign policy would now focus its foreign policy on promoting three pil- agenda. Ilars: encouraging the strength and effectiveness of interna- However, while the State-USAID plan creates a policy tional institutions; using force when necessary in the defense and a management council to conduct regular high-level of freedom; and promoting an ideal of democracy in every discussions between the two organization’s leaders, it pro- part of the world. vides little detail on how such discussions will systemati- Democracy promotion has been a part of U.S. foreign cally transform the State Department and USAID policy to varying degrees over the past 50 years, but it has bureaucracies so that their missions, cultures and incen- always been secondary to higher-level U.S. strategic and tive structures will support the elevation of democracy commercial priorities. The U.S. foreign policy apparatus promotion to the top of their policy and program agendas. was grounded in a realpolitik approach. U.S. national inter- The Strategic Plan states that democracy promotion, ests, not values, were supposed to be the primary determi- which falls under “development,” will support and be sup- nant for decision-making in the pursuit of foreign policy ported by complementary initiatives and efforts that fall objectives. under the “diplomacy” and “security” pillars. Yet nowhere The Bush administration’s success in reorienting U.S. does the plan describe how the State Department and foreign policy to achieve its stated strategic objective of pro- USAID will fundamentally change the way they carry out moting “an ideal of democracy in every part of the world” their work to accommodate democracy promotion’s new will depend in part on external factors — whether societies status as a foreign policy priority. in developing and transitioning countries can overcome a Meanwhile, the limits of current interagency relation- myriad of institutional and cultural obstacles. More impor- ships are shown rather dramatically in the following exam- tantly, however, its success will also depend on internal fac- ples from each of the four regions comprising the USAID tors — chiefly, whether the administration can articulate, world. All represent recent major U.S. foreign policy initia- form and implement a coherent, cohesive and consistent tives or high-priority countries in their respective regions. foreign policy with an apparatus that remains largely They also point up the fact that unless the U.S. foreign pol- unchanged from the Cold War era. icy apparatus undergoes significant structural reform, it is highly unlikely that the president’s recent proclamations will Aaron M. Chassy is a former USAID FSO. He and his be sufficient to reverse decades of institutional practice and wife, a USAID FSO, reside in Pretoria. habits at the State Department and USAID.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 77 Europe & Eurasia: states: “It is not clear whether U.S.- The Freedom Support Act supported reforms and innovations Russia provides an interesting case The relationship among are likely to be sustained. ... study of the relative importance of Continuation or expansion of the democracy promotion in U.S. foreign USAID, State and the innovations depends on further fund- policy toward a major strategic ally, ing from the U.S. government or and challenges the effectiveness of Justice Department has other foreign donors. Despite the the State Department-USAID rela- accomplishments of the program, tionship. often been “difficult” progress toward establishing the rule Since 1997, USAID has invested of law has been slow in the new inde- approximately $200 million in pro- when it comes to pendent states, and in several coun- moting democracy in Russia. The tries, including Russia and Ukraine, Freedom for Russia and Emerging rule-of-law programs. the situation appears to have deterio- Eurasian Democracies and Open rated in recent years.” Markets Support Act of 1992 To be fair, $26 million per year (Freedom Support Act, P.L. 102-511) allocated to democracy and gover- authorizes U.S. government assis- nance programs is a disproportionate- tance to the new independent states ly small amount for a country of of the former Soviet Union, which are commercial: Russia’s continued sup- Russia’s size — an estimated popula- referred to as Eurasia in USAID. The port of the U.S. war on terrorism and tion of 145 million as of July 2003 — USAID democracy and governance the continued liberalization of its and strategic importance. Moreover, program includes the following com- economy, making it more stable and Russian government officials as well ponents: strengthening civil society, lucrative for U.S. foreign direct as officials of the U.S. embassy, albeit building the capacity of Western- investment. This obvious contradic- off the record in the latter case, have oriented political parties to promote tion is not lost on either the Russian questioned the need and relevance of political reform, improving the people or the Russian government, a USAID mission in Russia, a country effectiveness of local government, and ultimately reduces the effective- which considers itself to be among and strengthening judicial sector ness and credibility of U.S. democra- the world’s major economic and polit- institutional actors to encourage the cy promotion efforts there. ical players. The United States cer- rule of law and protection of human While USAID was spending, on tainly validates this slightly inflated rights. average, $26 million per year on self-perception by supporting Russia’s USAID/Moscow’s Democracy democracy promotion, Russia was continued participation in the annual and Governance Office has histori- becoming increasingly more authori- Group of Eight summits without any cally supported several Russian tarian, especially under President conditionality for progress achieved in human rights organizations, many of Vladimir Putin’s administration. Most its political transition. which are fighting to bring Russia’s major independent media outlets federal government to account for the were harassed out of existence; the Latin American & Caribbean: atrocities it has committed against Russian federal government increas- Rule-of-Law Programs innocent civilians during its two inva- ingly recentralized to consolidate its The rule-of-law programs in Latin sions and subsequent occupations of authority; competition dwindled America are funded and administered Chechnya. But the work of Russian among rival political parties; and the by both the U.S. Department of NGOs to instill and promote democ- judiciary continued to remain mostly Justice and USAID, but coordinated ratic values and practices directly at under the control of the executive ostensibly by the State Department in the grassroots is undermined, at least branch. both Washington and at the country indirectly, by the U.S. embassy’s prac- In 2001, the U.S. Government level. As such, they offer a good case tices of turning a blind eye to these Accountability Office (then known as study in interagency policy coordina- atrocities. the General Accounting Office) deliv- tion and coherence. U.S. foreign policy places a greater ered a glum assessment of the impact In a recent evaluation of the U.S. priority on preserving the two coun- and sustainability of the rule-of-law democracy programs in Latin tries’ strong bilateral relationship. programs implemented in Russia (as America, the GAO reported that This relationship is predicated on two well as in Ukraine, Armenia and these programs have had a “limited considerations, one strategic and one Georgia). The report (GAO-01-354) impact,” and that where gains have

78 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 been made there are questions have merit, and both are required to State Department, which views them regarding their sustainability. This address the region’s complex chal- as integral to higher-priority policy affects U.S. credibility in promoting lenges. initiatives to promote regional stabili- democracy in the region. As the 2003 The Justice Department has an ty or to complement anti-narcotics report (GAO-03-358) states: “In ally in the State Department’s Bureau programs. The Justice and State many cases, the size and scope of of International Narcotics and Law Departments’ preoccupation with U.S.-supported programs have been Enforcement, which supports its “going after the bad guys,” i.e., their relatively limited, and countries have “drugs and thugs” approach to pro- focus on enforcement at the expense not adopted them on a national scale. moting the rule of law. This strong of prevention and awareness, leads The inability or unwillingness of host emphasis on enforcement often over- them to overlook recipient country governments to provide the necessary looks the high level of corruption and government security forces’ consider- financial, human, and political capital low level of institutional credibility of able shortcomings in their respect for has often negatively affected democ- many of the region’s state security human rights and the rule of law. racy program outcomes in these forces. USAID democracy and gov- A forthcoming book titled Drugs countries.” As host-country political ernance programs struggle to support and Democracy in Latin America: and financial resources to sustain the institutional development of The Impact of U.S. Policy, edited by democracy programs are difficult to countervailing forces, such as national Washington Office on Latin America mobilize, it is all the more important human rights ombudsmen and civil staffer Eileen Rosen, which evaluates that U.S. government agencies man- society watchdog organizations. They the impact of such programs, rein- age the assistance resources and pro- do so in an effort to help create checks forces this conclusion: “The United grams efficiently. and balances for state security forces, States has spent more than $25 billion But, as the GAO report notes, the which for decades enjoyed impunity to date on international drug control relationship among USAID, State and for their human rights abuses under programs without achieving its goal of the Justice Department has often U.S.-supported semi- and authoritari- reducing the supply of cocaine and been “difficult” when it comes to rule- an regimes. Many of these regimes heroin entering the U.S. However, of-law programs, one of the four ele- were and continue to be U.S. allies in the escalation of the drug war has ments of U.S. democracy assistance, brutal wars and counterinsurgency wrought varied but widespread, often and this has hindered long-term joint campaigns, either as part of the Cold profoundly damaging, consequences planning. The GAO goes on to state: War or more recently the U.S. war on in the region, straining fragile democ- “As we noted in a 1999 report, intera- drugs. ratic political systems and turning a gency coordination on rule-of-law Besides being unable to manage blind eye to abusive tendencies in the assistance has been a long-standing and balance multiple objectives at region’s military and police forces.” problem.” either the policy or bureaucratic level, From a technical standpoint, the the State Department lacks sufficient Asia & the Near East: The Justice Department focuses on technical knowledge and leadership Middle East Partners Initiative strengthening police forces (through to synthesize the different approaches According to the State Depart- its International Criminal Investiga- to promoting the rule of law. Charles ment’s Office of the Middle East tions Training and Assistance Pro- Call, of the Governance in War-Torn Partnership Initiative Director Alina gram) and building up prosecutors’ Societies Project at Brown Uni- Romanowski, MEPI seeks to: “sup- offices (through the Office of versity’s Watson Institute for Inter- port economic, political, and educa- Overseas Prosecutorial Development, national Studies, conducted a detailed tional reforms, as well as women’s Assistance and Training) in the opera- assessment of the ICITAP’s history empowerment in the region. It pro- tional and tactical aspects of adminis- and performance. He concluded: vides funding to the Arab private sec- tration of law and implementing crim- “(W)herever political will for change tor, academic establishments, think inal (procedural) codes. and institutional development have tanks, nongovernmental organizations USAID, by contrast, assumes a been lacking, (Justice Department) and other sectors of civil society, more institutional or developmental police training programs have had lit- drawing upon ‘their creativity, approach to strengthen other jus- tle or no success.” resourcefulness and drive’ to encour- tice-sector actors, including mem- Yet many ICITAP and OPDAT age reforms from within.” bers of civil society, to engender programs have been undertaken in The State-USAID Strategic Plan greater respect for human rights and this kind of implementing environ- touts MEPI as an example of strong the rule of law. Both approaches ment, usually at the insistence of the interagency collaboration, but it, too,

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 79 suffers from a lack of coordination funding and the life of projects are and is a good example of the chal- both relatively small, precluding any lenge of cooperative program devel- The first program realistic chance of achieving lasting opment and management. USAID reform or even building a solid foun- would like to leverage MEPI to component, anti- dation. anchor its democracy and governance Finally, recipient-country political programs with a view to addressing corruption, was severely actors put themselves at great risk by the political and institutional aspects participating in the MEPI projects. A of democratic transition. The State hampered by the front-page article in the Jan. 6, 2004, Department, on the other hand, is Washington Post detailed these risks compelled to consider other, more Nigerian government’s for Egyptian subgrantees of the strategic and/or commercial priorities, National Endowment for Democracy, and as a result is more hesitant to con- move to repeal the many of whom were confronted with front the crux of the democracy prob- the choice of either refusing to use lem: most of the states in the region Corrupt Practices and the grant funding for its intended pur- are governed by authoritarian pose or going to jail. In taking this regimes. Other Related approach, the Egyptian government is Daniel Brumberg underscored hardly the exception in the region, this assessment of MEPI: “Take a Offences Act. which is dominated by authoritarian close look at the State Department’s regimes considered to be strategic Middle East Partnership Initiative, allies of the United States. and you will find a longstanding emphasis on the usual liberalization Africa: Economic Support in formula: economic reform, promotion Democracy Promotion of women’s rights and the building of and issue a request for application to Economic Support Fund monies in civil society. These piecemeal reform potential grantees. Anyone familiar Africa have also been targeted at programs are designed not to tinker with the USAID system of grant achieving “piecemeal reform,” even in with the fundamental ruling institu- administration, which is designed to countries that are considered to be tions.” Other Middle East observers operate more flexibly than the con- U.S. strategic allies. Nigeria, the and experts, while commending the tract procurement process, will recog- region’s most populous country boasts president for his bold statement of nize that it simply cannot function the second-largest USAID democracy principles, have expressed similar under these circumstances. and governance program in Africa. doubts and skepticism about the effi- On the receiving end of this Compared to other, similar programs cacy of MEPI, especially as its activi- process, representatives from U.S. in the African region, Nigeria received ties are currently targeted, designed nongovernmental grantees and for- one of the highest amounts by far of and implemented. profit contractors tasked with execut- ESF and total funding for democracy To begin with, problems exist with ing MEPI projects, generally agree and governance programs in both FY MEPI’s internal administration. that these circumstances provide 2003 ($7,373,000) and FY 2004 Individuals in the USAID Democracy them with little chance for success. ($5,267,000). & Governance Office, responsible for They cite several reasons. First, the According to the USAID/Nigeria representing the agency in joint State accelerated project development FY 2004 Budget Justification, Nigeria Department-USAID committee meet- process is often based on faulty uses its ESF monies to “fund anti-cor- ings for programming decisions on assumptions and mis- or under- ruption activities for civil society over- MEPI, have experienced great frus- informed analysis of the implement- sight of national budget preparation tration in their dealings with State. ing environment. Second, the pro- and implementation, policy reform State Department officials reach their jects’ intended results are often unre- and advocacy” and “strengthen the own decisions on how to allocate and alistic because they generally target capacity of local NGO networks and program the money, with little input strengthening recipient-country, non- conflict resolution practitioners to from USAID. USAID generally has governmental political actors, who mediate conflict as well as the capaci- very little time, sometimes less than 24 have little power and no formal ty of community groups to institute hours, to review and sign off on the authority to effect change at the insti- conflict avoidance and peace mainte- State Department’s proposed program tutional level. Third, the level of nance mechanisms.” Nigeria is an

80 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 excellent example of the challenge of sion all undermine the effectiveness The State-USAID Strategic Plan interagency policy coordination and and credibility of the USAID pro- fails to address these and associated coherence for the success of democ- gram activities aimed at preventing, other challenges: How will the U.S. racy programs. In Nigeria one can reducing and mitigating conflict. Department of State, through diplo- clearly see that U.S. democracy pro- There may be any number of macy and other core functions, help motion efforts, such as these ESF- explanations for the apparent con- create a more enabling environment funded programs, would benefit if the tradictions among U.S. government where USAID democracy and gov- State Department worked through objectives, but the most likely is that ernance programs can achieve suc- diplomatic channels to generate the State Department places a high- cess? Or, at the very least, how will greater political will for reform. er priority on achieving the foreign State diplomats reconcile compet- The first program component, policy objectives of maintaining ing, sometimes conflicting U.S. for- anti-corruption, was severely ham- strong commercial ties to Nigeria, eign policy objectives more effec- pered by the Nigerian government’s the fifth-largest petroleum product tively and more consistently so as not move in February 2003 to begin the supplier to the U.S. In addition, the to undermine USAID democracy process of repealing the Corrupt U.S. government would prefer to and governance programs? Practices and Other Related reinforce the Nigerian government’s If the Bush administration is Offenses Act. It is difficult to imag- continued leadership in the U.S. truly committed to elevating ine the level of potential impact of Department of Defense’s push for a democracy promotion to the same any such civil society-led efforts greater African role within a mecha- level as U.S. strategic and commer- when the regime in power repeals nism, to be supported financially cial interests in our foreign policy, the major piece of enabling legisla- and logistically by the U.S., for a then it must face up to several chal- tion needed as a starting point for rapid response to the region’s con- lenges. Foremost among these is a such efforts. Moreover, President flicts. This mechanism would rely long-overdue restructuring of the Olusegun Obasanjo’s political cor- heavily on the leadership of foreign policy apparatus — not just ruption, including his manipulation Nigeria’s military, which is the USAID, but also the Department of of the April 2003 presidential elec- largest, best-equipped armed force State and all other organizations tions to assure his re-election, casts in West Africa. Unfortunately, the that play major and minor roles in additional doubt on the level of his Nigerian military’s leadership of the U.S. foreign policy. This restructur- regime’s political will for reform. Economic Community of West ing must assure a greater degree of The second component, conflict African States’ interventions over coherence in the pursuit of multi- reduction and peace building, was the last 14 years has been character- ple, sometimes competing strategic undermined by Obasanjo’s decision ized by international and regional goals and objectives. to harbor Charles Taylor, Liberia’s civil society organizations as ruth- As this article has tried to demon- former president, after he fled less, including large-scale corrup- strate, the United States ignores the Liberia under pressure from the tion, looting property, arming local linkages between democracy promo- international community and from a militias and conducting summary tion and other foreign policy priori- rebel siege of Monrovia in August executions. ties at its own peril. Doing so only 2003. Obasanjo refuses to hand reduces U.S. credibility as a partner over Taylor, who is wanted by the Summing Up and ally, and detracts from its legiti- United Nations-backed Special The examples above illustrate the macy as the leader among the Court for Sierra Leone on charges challenges inherent in achieving world’s democracies. It is possible to of “murder, mutilation, abduction of multiple foreign policy objectives protect our interests without sacri- children and mass rape and … simultaneously, especially without ficing our values, but doing so will crimes (that) took place under either (a) an overriding policy ratio- require a concerted effort across the Taylor’s orders…” Without a doubt, nale or (b) the effective collabora- entire foreign policy apparatus to Taylor has created the greatest tion of the U.S. government agen- narrow the gap between policy amount of conflict and violence in cies involved. When a tension exists rhetoric and reality. Efforts to nar- the subregion, causing incalculable between competing policy objec- row this gap will in large part deter- levels of suffering and instability. tives, it will often disrupt the work- mine whether U.S. foreign policy His presence in Nigeria, the ing relationship between the organi- can continue to secure peace and Obasanjo regime’s protection of him zations tasked with implementing promote prosperity, both at home and the U.S. tolerance of this deci- the policy. and abroad. ■

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 81 TELLING OUR STORY: THE NATIONAL MUSEUM OF AMERICAN DIPLOMACY

THE FOREIGN AFFAIRS MUSEUM COUNCIL IS WORKING TO ESTABLISH THE DEPARTMENT OF STATE VISITOR CENTER AND NATIONAL MUSEUM OF AMERICAN DIPLOMACY IN MAIN STATE.

BY STEPHEN LOW

f all the memorials and historical Institute campus, I had already been involved in helping museums in this country, including create an exhibit and pamphlet called A Brief History of some 220 administered by the federal American Diplomacy. Working with Nick Burns, then government alone, not one focuses on acting assistant secretary for public affairs, we had put our relations with the rest of the world together a diplomatic history display in Main State’s or describes the proud record of exhibit hall, which Secretary of State Warren Christopher American diplomacy. opened in one of his last official public acts. This sad situation reflects the fact that in our country, Then, in 1999, the White House called on every fed- Odiplomacy is neither highly valued nor well understood, eral agency to create a project celebrating the new mil- and its contribution to the development of our modern lennium. The United States Agency of International nation is unappreciated. Many Americans have little idea Development had moved out of Main State, and the what an embassy is, or what an ambassador does. Nor are General Services Administration had provided the they aware that our diplomats and other Foreign Service department with over $350 million to renovate the oldest personnel work 24/7 around the world in the interest of part of the building — the part built and occupied by the the American people. They do not understand the antic- War Department from 1941 to 1947. ipation we experience as we approach every new assign- Seizing our opportunity, we approached Secretary of ment, whether in Canada or Burkina Faso; the hours State Madeleine Albright with our proposal to designate dedicated to learning languages, new customs and laws, a space at the 21st Street entrance for public access to the and meeting new people; or the pride we feel when we department for the prospective museum and a visitor see an important agreement that we have toiled over center. She not only backed it, but presided over a signed, a business opportunity opened, an exchange stu- ground-breaking ceremony in November 2000, in which dent back home full of new experiences, a dispute Secretary Christopher and Senators Mathias and Paul resolved and hostilities averted, and Americans protected Sarbanes, D-Md., also participated. abroad. But while State has agreed to provide the renovated Several years ago, I discussed this problem with for- space, staff and security, the cost for designing, fabricat- mer Senator Charles (Mac) Mathias, R-Md. He respond- ing and installing the exhibitions and presentations must ed: “Let’s do something about it.” And together, we start- come from the private sector. To raise those funds, we ed to investigate the establishment of a new National set up a private, nonprofit 501(c)(3) organization, the Museum of American Diplomacy on the Washington Foreign Affairs Museum Council, with Sen. Mathias as Mall. chairman. All living former Secretaries of State are hon- The timing for pursuing our initiative was auspicious. orary directors of the museum, and all have signed a let- Through the private, nonprofit Association of Diplomatic ter of support, stating: “We believe that this is an impor- Studies and Training located on the Foreign Service tant initiative that will stimulate considerable interest and

82 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 is deserving of the support of those who recognize the of firms to design the exhibits and work with the archi- need for a place to promote the public’s understanding of tects of the building renovation: Karn, Charuhas, diplomacy.” Chapman & Twohey. One of Secretary Powell’s first acts after taking office Appelbaum — a former Peace Corps volunteer, was to reaffirm the department’s undertaking and his USAID employee, creator of exhibits for the United strong support of the museum: “I want to do a better job States Information Agency and the country’s leading of explaining to the American people why what we do is museum designer — designed the exhibits for the important to them and merits their support.” Holocaust Museum, the Newseum, and the National To oversee the project (now known as “The Constitution Center in Philadelphia, and is now working Department of State Visitor on the National Capitol Visitors Center and National Museum of Center, the Clinton Library and American Diplomacy”), the other museums all over the United States Diplomacy Center Providing a permanent home world. He has completed the office was created in 2001, initial concept design for the responsible to Assistant Secre- from which to showcase Visitor Center and Museum tary for Public Affairs Richard (see illustration, p. 86). Boucher, and headed by Senior American diplomacy to the In a city of museums, ours Foreign Service officer Michael has to be compelling, first-class A. Boorstein. As Secretary public is a concept and state-of-the-art. I am con- Powell declared, “The United vinced it will be among the States Diplomacy Center will be well worth the effort. finest. Through interactive an important part of our effort to media, the Visitor Center will help free people everywhere spotlight the work of the understand the crucial role of Secretary of State and American diplomacy in keeping the peace and advancing the cause diplomacy, and will explore the role of American diplo- of freedom.” The Center has already put together a matic posts abroad. The public will learn what the major exhibition that has toured the country, “After 9/11: Department of State and the other foreign affairs agen- Messages from the World and Images of Ground Zero” cies have done and continue to do for the nation every (see p. 84). day in helping to maintain security, promote prosperity, seek peace and expand American ideals. The museum The Way Ahead will invite visitors to explore highlights of American A feasibility study conducted by a major fundraising diplomatic history from Ben Franklin to the present, pro- consultancy found that there was great interest in the viding insight into the way we practice diplomacy, and project among donors nationwide and concluded that the posing challenges with which individuals and groups can money to build the project could be raised. Ralph grapple. Appelbaum Associates Inc. was selected from a number The museum administrators are working with ADST to make use of its collection of over 1,200 oral histories. Retired FSO Stephen Low served as ambassador to There will be stories that bring memorable artifacts to life, Zambia and Nigeria, among many other assignments, and such as a blindfold worn by one of the hostages held in completed his career with five years as director of the Iran in 1979-1980; historic treaties portrayed in the set- Foreign Service Institute, during which time the new cam- ting in which they were signed; paintings relating to diplo- pus was acquired and designed. Following five years as macy; items hallmarking important milestones for diplo- director of the Johns Hopkins Bologna Center, he returned macy in technology and communications (including a to Washington to serve as president, first of the Wang computer!); and items related to arms control, such Association for Diplomatic Studies and Training and then as a pen made of titanium from a melted-down rocket the Foreign Affairs Museum Council, both of which he once pointed at the heartland of America and another, was instrumental in creating. more ornate pen used to sign the optimistic Kellogg-

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 83 After 9/11: Messages from the World By Priscilla Rachun Linn

hile Americans were veying that healing and resiliency crate/case comprises a different struggling to cope would prevail after a great national theme: with the trauma of trauma. the Sept. 11, 2001, The United States Diplomacy • “Getting the Message” displays W terrorist attacks, Center partnered with the Museum of the media people used to convey their people from more than 160 countries the City of New York and the design thoughts, and presents a video of the were reacting to their own shock, and firm of Whirlwind, Inc. to capture the events of Sept. 11, 2001. sending messages of outrage, comfort, feelings through an exhibition, “After hope and encouragement to American 9/11: Messages from the World and • “Innocence from Abroad” voices embassies and consulates. Many wrote Images of Ground Zero,” that opened the friendship and fears of children. messages in black-bound formal condo- in 2002. This was the first traveling lence binders, while others brought exhibition of the United States • “The Power of the Word” commu- flowers, candles, flags, souvenirs of Diplomacy Center, combining 108 nicates messages in diverse lan- U.S. visits, photographs, clothing, art- messages with 32 images taken by Joel guages. work, letters, poems, Meyerowitz (the only pho- essays, CDs, videos, stuffed tographer granted artistic • “Symbols and Icons” shows how animals, newspapers — freedom at the World Trade flags, hearts, hands and peace cranes indeed, almost every form site). The Meyerowitz pho- become replacements for words. of individual expression tos had already traveled to imaginable. over 100 U.S. embassies • “From the Heart” communicates Over the months, boxes through the State Depart- the emotions that people shared. of messages arrived at our ment’s Bureau of Edu- missions from students, cational and Cultural Affairs. • “What Is Your Message?” enables church groups, business employees, Many offices and individuals visitors to write a message about 9/11 rescue workers and community mem- throughout the State Department on a long roll of butcher-block paper, bers, and were sent back to the State assisted the United States Diplomacy which the museum can then keep as a Department, filled with the outpoured Center to make the exhibit possible, remembrance of the traveling exhibi- sympathies of countless individuals. including the Office of Protocol, the tion. Together the messages symbolized a Office of Records, the Historian’s giant hug from the world’s people for a Office, the mail rooms, and the Office There is no cost to the museums stunned and grieving America. of Language Services. that host “After 9/11.” The Gerald R. Many in the United States did not Additional photos of 150 artifacts Ford Presidential Museum in Grand know about these messages. appear in flip books and, together with Rapids, Mich., was the first facility to Regrettably, Americans were caught the displays, 120 countries are repre- request the exhibition, and it opened up in fear and uncertainty, not realizing sented in the exhibit. To symbolize the there in September 2002 to commem- that beyond our borders, people were fact that all the artifacts were originally orate the first anniversary of the reaching out to them. One way to sent to U.S. embassies and con- attacks. So popular was its appear- communicate the heartfelt hope from sulates, whether electronically, by post ance that a record was broken for visi- other lands was to create an exhibition or by hand, the display cases are pre- tors in a single day, and attendance of the many items sent, together con- sented as packing crates. Each tripled over the course of its stay. The

84 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 George H. W. Bush Museum and Library in College Station, Texas, was the exhibition’s next venue. Former President Bush and former First Lady Barbara Bush opened the exhibition, where he wrote the message, “God bless them all.” Two additional venues in Florida also drew significant crowds. “After 9/11” is now at the Jimmy Carter Center in Atlanta, Ga., for the third anniversary of the attacks. In the winter of 2005, the exhibition will travel to Nevada. There will be a place for the “After 9/11” exhibition for years to come, to remind us all that during one of our worst national tragedies, the world was there to offer sympathy and hope.

Priscilla Rachun Linn, D.Phil., the curator of the “After 9/11” exhibition, works in the Bureau of Public Affairs’ United States Diplomacy Center.

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 85 Briand Pact. There will be audio lectures, discussions and perfor- and video clips of first-person mances. accounts, and opportunities to relate All living former The Foreign Affairs Museum the economic, social, educational, Council has already collected $1.25 environmental and tax profile of Secretaries of State are million in seed money toward an esti- each state to treaties, cultural pro- mated $25 million in private funds grams, sister-city programs, com- honorary directors needed for the project. It is a tall mercial pacts and other aspects of order to fill, but providing a perma- diplomacy. of the museum. nent home from which to showcase A theater in the Visitor Center American diplomacy to the public is a and Museum will create an immer- concept well worth the effort. Those sion experience for the audience, who would like to know more about providing a sense of the commit- this project and how they can help ment, courage and resourcefulness make it happen can call (202) 736- of those serving in the diplomatic 9040 or e-mail [email protected]. community. Classrooms will enable area commemorating those who If we work together on this, offer- the Visitor Center and Museum to have fallen in the line of duty. An ing ideas, artifacts and funds for build- pursue robust education and out- adjacent conference center and ing the exhibits, we can respond to reach programs. The Visitor Center auditorium — a rebuilt and expand- Sen. Mathias’ directive by saying with and Museum will have a dedicated ed East Auditorium — will feature satisfaction, “We did it.” ■

86 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 BOOKS

Mexican ernors, businessmen in cowboy Memories Davidow offers a boots, and Christian conservatives, who could sit down without inter- far-reaching, preters and level with each other The U.S. and Mexico: non-partisan about real problems on the ground. The Bear and the Porcupine Indeed, at their first meeting, Bush Jeffrey Davidow, Markus Wiener action program for and Fox quickly reached an agree- Publishers, 2004, $24.95, paper- improving U.S.- ment in principle on Fox’s top agen- back, 254 pages. Mexican relations da item, setting up a task force to REVIEWED BY TED WILKINSON that would serve us deal with the spectrum of Mexican immigration issues. In return, Fox Every few years, American read- well no matter agreed to make up the shortfalls in ers can reasonably expect to see a which party wins Rio Grande water allocations to first-rate book by an old hand with in November. Texas, a burning issue on Bush’s expertise in U.S.-Mexican relations. home ground. Alan Riding’s Distant Neighbors So what went wrong? Certainly (1986) immediately comes to mind, the 9/11 attacks made everything along with Sydney Weintraub’s much more difficult, but Davidow Marriage of Convenience (1991), to stay on for what turned into a four- believes the problem began earlier. Andres Oppenheimer’s Bordering year term. When Davidow left Both leaders were naïve, and on Chaos (1998), and Clint Smith’s Mexico in the summer of 2002, he was thought they could deliver far more Inevitable Partnership (2000). Jeff the longest-serving ambassador in a than they could. As he ruefully Davidow’s The U.S. and Mexico: The U.S. diplomatic post.) observes, “Important and powerful Bear and the Porcupine sets a new, It was a tenure replete with both political forces did not favor change. even higher standard. triumphs (such as PAN candidate They rarely do.” The Mexican side The most recent of seven career Vicente Fox’s election to the presi- in the bilateral talks, led by Foreign FSOs to serve as chief of mission in dency in 2000, ending more than 70 Minister Jorge Castaneda, a charm- Mexico City during the past half-cen- years of continuous PRI rule) and ing political maverick, didn’t make tury (including John Negroponte), tragedies (such as the 9/11 attacks’ things any easier by insisting on “the Davidow has given us an engrossing, disastrous impact on Mexico’s agen- whole enchilada” of migration revealing, vivid and, at times, hilarious da with the U.S.). reforms at one time. Similarly, Fox’s account of four historic years (1998- Davidow deftly takes us through efforts to fulfill his promise to deliv- 2002) that spanned two Mexican pres- the last years of the Zedillo adminis- er Rio Grande Treaty-mandated idencies — the last two-and-a-half tration, the dramatic 2000 election, allotments of water came to naught years of Ernesto Zedillo and the first and his own efforts to avoid feeding when the relevant northern state year-and-a-half of Vicente Fox. Mexican paranoia about real or sup- governors found ways to ignore (President Bush had observed posed U.S. intervention. But the them. Davidow at work from his office in highlight of the book comes when Davidow actually begins his Austin while still governor, and while Fox takes office, raising hopes of a account in the distant past, describ- visiting Fox’s ranch in Guanajuato transformed bilateral relationship. ing an apocryphal Aztec codex that early in his administration, asked him Both leaders were former state gov- tells how the porcupine became the

SEPTEMBER 2004/FOREIGN SERVICE JOURNAL 87 B OOKS mascot of Montezuma’s forebears, cation of its broad appeal, the showing them how to fend off with Spanish-language version, published its spiny barbs the great bear that in Mexico some nine months earlier Rana recommends that roamed in the northern forests. than the U.S. version, has already Though the fable is entirely of the sold over 25,000 copies! ambassadors “shed the author’s own making, it proves an effective device, both because the Ted Wilkinson, a former minister- baggage of pomp” and bilateral relationship is indeed fre- counselor in Mexico City, now serves quently prickly and because as a retiree member of the AFSA concentrate on Davidow himself (probably the Governing Board and on the Journal tallest U.S. ambassador since John Editorial Board. managing the bilateral Kenneth Galbraith) would be pretty imposing in a bearskin. relationship. Looking ahead to 2025 in his con- The Model of a clusion, Davidow shows equal creativity in scripting a bilingual dia- Modern logue between the American and Ambassador Mexican presidents about the (imag- ined) perfidy of their Canadian environment. NAFTA partner, who is still strug- The 21st Century Ambassador: Rana’s argument is based on gling with separatism. After the call, Plenipotentiary to Chief today’s political and bureaucratic real- President Gonzalez’s glance falls on Executive ities and not on nostalgic memories of the displayed inaugural gifts he got Kishan S. Rana, Mediterranean a golden age. He illustrates that it is from his mother’s birthplace in Academy of Diplomatic Studies precisely because of social, political Jalisco. He then walks into the Oval (Diplo Handbooks), 2004, 21 euros and economic changes that the insti- Room at the White House to begin (approx. U.S. $25), paperback, tution of ambassador is a necessary his day’s schedule. 258 pages. element in effective governance in A Chicano president of the this increasingly global world. He United States in 2025? Not so far- REVIEWED BY EDWARD MARKS recognizes the changes that lead some fetched, if you reckon that our to dismiss professional diplomacy as Hispanic minority, at some 13 per- Diplomats, as a class being more no longer valid: modern communica- cent of the population, has already or less literate, produce a stream of tion technology, the major role of surpassed the African-American articles and books as they pass into other departments, direct capital-to- demographic, and if you posit freer retirement. Apart from classic mem- capital dealings, the explosion of the movement and greater integration in oirs, they discuss either foreign policy number of subjects that are the busi- the next 20 years, as NAFTA gains (what is or was done rightly or wrong- ness of modern diplomacy, and the force. Operating on that assump- ly and what should be done) or the loss by the ministry of foreign affairs tion, Davidow then outlines a far- practice of diplomacy, usually how it of its historic gatekeeper role. reaching, nonpartisan action pro- has changed or is changing in the However, he argues, beginning with a gram for the coming years that modern world. quotation from a State Department would serve us well if the winning Retired Indian Ambassador memo of 1970, that these changes party were enlightened enough to Kishan S. Rana‘s book, The 21st only mean the need is for a “new adopt it in November. Century Ambassador: Plenipotent- breed of diplomat — managers.” The U.S. and Mexico is must iary to Chief Executive, falls into the As such, the modern ambassador reading not just for the many later category. As his title indicates, “sheds the baggage of pomp and con- Foreign Service people serving or he focuses on the ambassador as an centrates on the promotion, outreach, planning to serve in the country, but institution that continues to represent negotiation, feedback, management for all Americans who have some the cutting edge of the international and servicing functions” of the bilater- sense of how closely linked our own diplomatic system, and considers al relationship. The chief of mission is destiny is with our 100-million-plus ways in which that institution’s func- obviously not master of the entire immediate neighbors. As one indi- tioning can be optimized in today’s enterprise — not even the foreign

88 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 B OOKS minister or Secretary of State is — but does it help that J. Patrick Hart (the he or she is the only senior official nom de plume of a current FSO) occupied full-time with that particular Hart has a rare gift for splits the narrator duties between bilateral relationship. Rana’s detailed George McCall, a well-meaning but discussion of the contemporary making his characters troubled consular officer in ambassador’s role in both the external Istanbul, and Bill Bigelow, the clas- world and the domestic arena will three-dimensional, even sic American Citizens Services case (one hopes) not be news to American from hell. Bigelow suffers from ambassadors, but is instructive if what they do is mental illness yet inexplicably man- nonetheless. ages to con several other characters, Rana’s own career (including five sometimes frankly Turkish and American, into trusting ambassadorships in countries as dis- him at crucial junctures. It may parate as Kenya and Germany), com- unbelievable. well be that Hart is thereby making bined with extensive research, gives a subtle point about the fragile psy- this book credibility. In particular, his chological state of many Foreign experiences representing a major Service employees, or the inherent country in the (so-called) Non- unreliability of all storytellers, but if Aligned World provide a refreshing so, it eluded me. perspective to occasionally ethnocen- Nevertheless, I warmly recom- tric American eyes. mend this novel to Foreign Service And the sheer breadth of coverage Ambassador Edward Marks, a readers. Hart has a rare gift for mak- is impressive in itself, with chapter retired FSO, is a former member of ing his characters three-dimensional titles such as “The Transformed the Journal’s Editorial Board. (even if what some of them do is Plenipotentiary,” “Ritual and Re- frankly unbelievable). The world- form,” “Partners and Techniques,” weary McCall, trying to decide “The Multilateral Ambassador,” “The Turkish Tales whether he can both continue in the Domestic Dimension,” and “Leader- Foreign Service and save his ship in the Embassy.” foundering marriage, is an enor- As we all know, the State Savarona mously sympathetic protagonist, and Department is not very diligent at J. Patrick Hart, PublishAmerica, Bigelow, while too surreal for my professional education. (It does 2004, $19.95, paperback, 218 pages. taste, is not someone I will soon for- offer its personnel a certain amount get, either. They are joined by a host of training to perform functions REVIEWED BY of other vivid characters, major and ranging from issuing visas to drafting STEVEN ALAN HONLEY minor, each with their own set of memos and cables, but not much virtues and flaws. instruction in the meaning and pur- It is a cliché that Foreign Service Hart also captures, as well as any pose of diplomacy.) The 21st fiction is most often really thinly- Foreign Service writer I’ve ever Century Ambassador could serve veiled autobiography, with judicious encountered, the rhythm of life very well as a preparatory text, per- changes to the historical record to overseas, the excitement and ennui haps for the A-100 course, but cer- render the protagonist more sympa- of consular work, and the tensions of tainly for the DCM and ambas- thetic or sagacious than was the case balancing work and a personal life. sadors’ courses — or even for new in real life. But this tale of interna- And while I’ve never been to Turkey, senior political appointees in the tional and bureaucratic intrigue, set his descriptions of the sights, sounds State Department. The book has mostly in Turkey, appears to be an and smells of that exotic locale ring much to say and provides much exception to that rule, which is — to true, as well. thoughtful guidance on how to do adopt classic State-speak — both The bottom line: if you’re look- effective diplomacy in today’s and good and bad. ing for a plot-driven spy novel, this tomorrow’s world. To get the only significant prob- isn’t the book for you. But if you Also, by the way, Ambassador lem with Savarona out of the way want to read about characters that Rana is an excellent drafting officer. up front, its plot is hard to follow every Foreign Service member has and makes very little sense. Nor worked with, encountered, or been,

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I Just Shake My Head Sometimes

BY JOHN D. BOYLL

“I need some help.” “Oh, that’s Pest Control. “Oh, why didn’t you say so? You need “What seems to be the problem?” I’ll transfer you.” a different form for emergency “There’s a snake in my office!” requests.” “This is Security. We deal with “There’s a snake in my office.” “What!?” security issues. I’ll transfer you.” “A snake?” “You need a different form: Form “Isn’t a snake a security concern?” “Yes, a snake.” FS-9811.” “Is the snake holding a gun?” “Well, don’t tell Maintenance; they “FS-9811.” “Well, no. But he’s making threaten- won’t let you keep it.” “Yes. As soon as you can fax that form ing gestures.” “I don’t want to keep it. I want it to us, we’ll get right on it.” “Do you feel he may explode at any removed.” “Okay. Form FS-9811.” moment?” “Oh, then you need to tell “And Form SF-1109.” “No, but…” Maintenance. I’ll transfer you.” “Two forms?” “That’s another department. “No, Maintenance just transferred me “Yes, one for the snake and one for I’ll transfer you.” to you.” the emergency.” “Sorry, but we’re Pest Control.” “Okay, okay. I’ll send Form FS-1198 “This is Maintenance.” “A snake isn’t a pest?” and Form SF-8911.” “I have a problem.” “Well, is it bothering you?” “What!? You have an alligator in your “I’ll transfer you.” “Yes, it’s bothering me!” office?!” “No, wait — you don’t know what my “Oh, then you need to fill in Form “What?!” problem is.” SF-1108.” “Form FS-1198 is for alligators.” “We don’t handle problems. We deal “Okay.” “You just said it was for poisonous with paint, appliances — that kind “Then you need to bring that form to snakes.” of stuff.” this office between 8 and 10 a.m.” “No, that’s Form SF-1109. How long “But there’s a snake in my office!” “But the snake is rattling at me right have you had an alligator in your “Oh, that’s Human Resources. now.” office?” I’ll transfer you.” “Rattling? What kind of snake is it?” “I…” “Why?” “What? Do you want me to ask it?” “Maintenance won’t let you keep it.” “We don’t deal with that.” “Well, if it’s a rattlesnake, you need a “I — I guess I mean SF-1109.” “Why not?” different form.” “That’s fine, but it won’t help if you “Every office has at least one snake “What?” have an alligator.” in it.” “You need a different form: SF-1109. “I don’t have an alligator – it’s a “No, I mean a real snake — an animal SF-1108 is for non-poisonous snake!” with fangs.” snakes.” “Oh. I did think it’d be odd to have a “Okay — but come quickly!” rattling alligator, you know.” John D. Boyll currently works with the “I beg your pardon?” “Look, I need you to come right away U.S. embassy in Mexico City and has “How soon can you get here?” — I’ll send the fax immedia — served with the State Department in ”You need to fill in an SF-1109 first Ow!” Manila and Frankfurt. He enjoys writ- and bring it down between 8 and “I beg your pardon?” ing works of fiction and humor in his 10 a.m.” “The snake just bit me!” free time. The stamp is courtesy of the “But this is an emergency — it could “Oh, that’s another department. AAFSW Bookfair “Stamp Corner.” bite people!” I’ll transfer you.” ■

96 FOREIGN SERVICE JOURNAL/SEPTEMBER 2004 AFSAAmerican Foreign ServiceNE Association • September 2004WS

2004 AFSA AWARDS CEREMONY Inside This AFSA Recognizes Courage and Excellence Issue: BY KRISTOFER LOFGREN, EDITORIAL INTERN BRIEFS: FAS SCHOLARSHIP...... 2 n June 24, AFSA held IRAQ TO PARIS?...... 3 its annual awards cer- FCS: MEETING EXPECTATIONS? ...... 4 Oemony honoring those CANDIDATE FOR DIPLOMACY...... 5 within the Foreign Service AFSA ACHIEVEMENT WINNERS...... 6 ranks who have the courage to BILL GOING NOWHERE FAST ...... 8 dissent and who exemplify the Q&A: INVENTORY...... 9 very best of American diplomacy. The ceremony, held in the ornate Benjamin Franklin Foreign Service, he noted that “our value- Diplomatic Reception Room at added is our expertise, and we do it better the State Department, was offi- than anyone else in the U.S. government.” Jay Mallin Jay ciated by Director General of He pointed out that the efforts in which he the Foreign Service W. Robert Amb. Parker (left) receives the Award for Lifetime Contributions to was involved were collective, and the honor American Diplomacy from Director General W. Robert Pearson. Pearson and AFSA President should be shared with colleagues in Israel John Limbert. and Iraq. Amb. Richard B. Parker, a three-time eral in Jerusalem and later as a provincial Keith W. Mines was awarded the ambassador and the first non-native speak- coordinator in Iraq. Schlicher acknowl- William R. Rivkin Award for his dissent- er of Arabic to achieve a 4/4 rating in the edged that he was surprised to win a “dis- ing view on Iraq policy. In his acceptance spoken and written language, was recog- sent” award for doing his job; for honest remarks, Mines warned that Iraq’s future nized for his 31-year career in the Foreign reporting and analysis, and for using his best is “too important to allow ideology to Service and outstanding achievements in judgment. Praising the work of the Continued on page 9 retirement with the award for Lifetime Contributions to American Diplomacy. Amb. David Newsom (the 2000 lifetime AFSA Press Conference on Iraq Service contribution winner) accepted the award on behalf of Amb. Parker, calling him a “pioneer in understanding the (Middle East) region.” He expressed their shared concern that Middle East Studies programs in the U.S. have been criticized as being unpatriotic at a time when government experts in the field are in short supply. Four awards were given for constructive dissent. Deputy Assistant Secretary for Near Eastern Affairs David Satterfield presented Senior Foreign Service officer Mikkela Thompson Mikkela Ronald L. Schlicher with the Christian A. AFSA President John Limbert and FSO Beth Payne hold a June 17 AFSA press briefing to present views Herter Award for his service as consul gen- on Foreign Service work in Iraq and to urge passage of the State authorization bill. Story on page 4. AFSANEWSBRIEFS First Patterson Scholarship Awarded On July 14 at a recruiting lunch for the Foreign Agricultural Service, AFSA CFC: Support American Diplomacy announced the winner of the first Martin G. Patterson Scholarship. The It is that time of year again: time to consider a recipient of the $1,700 scholarship for 2004 is Natalie Jones, a junior Combined Federal Campaign contribution. AFSA studying nursing at Brigham Young University. Natalie is the daughter of urges members to consider donating to one of the Jeff Jones, an FSO with FAS. two AFSA CFC funds. The Patterson Scholarship was created to honor the memory of Martin AFSA SCHOLARSHIP FUND: CFC #2422 “Marty” G. Patterson, an FSO with the Foreign Agricultural Service who The AFSA Scholarship Fund provides over passed away in July 2003. Each year the recipient of the Patterson $150,000 each year to Foreign Service children to Scholarship, which goes to the child of a FAS or APHIS Foreign Service officer, help meet college expenses. Please support will be provided biographical information about Patterson and his family. Foreign Service families by donating to this fund. As of early July, over $17,000 had been donated by 92 individuals in support of this perpetual scholarship. The scholarship was created in AFSA FUND FOR AMERICAN DIPLOMACY: 2003 as an AFSA Financial Aid Scholarship program, and only the interest CFC #2460 is used for the award, so it will not be depleted. AFSA strives to build a constituency for the More information about Marty Patterson and the scholarship can be Foreign Service through the activities of the Fund found at www.martinpattersonscholarship.com. A donation form is at for American Diplomacy. Through nationwide www.martinpattersonscholarship.com/donation%20Letter.doc. Donations education programs — including the Speakers’ can be made online or by mail, e-mail or fax. Credit-card donations are Bureau, Elderhostel, the AFSA High School Essay welcome. In addi- Contest, the Inside a U.S. Embassy book, the award tion, checks payable program and more — AFSA shows the American to the “AFSA public how U.S. diplomacy promotes America’s Scholarship Fund” interests abroad. with “In Memory of For more information on the programs support- Martin Patterson” in ed by these funds, go to www.afsa.org/ the memo line, can scholar/index.cfm for scholarships and be sent to Lori Dec, www.afsa.org/pubresources.cfm for FAD. Scholarship Information is also available from AFSA CFC Director, AFSA, Coordinator Lori Dec, reachable by phone: 2101 E St. N.W., Front row: Alicia and Constanza Valdes-Patterson. Back row: (202) 944-5504 or by e-mail: [email protected]. Washington, DC Bill Westman, Mike Conlon, Eric Wenberg and Kyle AFSA thanks you in advance for your support. 20037. Cunningham, all instrumental in establishing the scholarship. Briefs • Continued on page 8

AFSA HEADQUARTERS: Staff: Governing Board: (202) 338-4045; Fax: (202) 338-6820 Executive Director Susan Reardon: [email protected] Business Department STATE DEPARTMENT AFSA OFFICE: 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 Labor Management USAID VICE PRESIDENT: Bill Carter General Counsel Sharon Papp: [email protected] FCS VICE PRESIDENT: Charles A. Ford FCS AFSA OFFICE: Labor Management Attorney Zlatana Badrich: [email protected] (202) 482-9088; Fax: (202) 482-9087 Labor Management Specialist James Yorke: [email protected] FAS VICE PRESIDENT: Laura Scandurra USAID Senior Labor Management Advisor Douglas Broome: [email protected] RETIREE VICE PRESIDENT: George F. Jones AFSA WEB SITE: www.afsa.org USAID Office Manager Asgeir Sigfusson: [email protected] SECRETARY: F.A. “Tex” Harris AFSA E-MAIL: [email protected] Grievance Attorneys Charles Henderson: [email protected] and Neera Parikh: AFSA NEWS: [email protected] [email protected] TREASURER: Danny Hall FSJ: [email protected] Office Manager Christine Warren: [email protected] STATE REPRESENTATIVES: Pamela Bates, PRESIDENT: [email protected] Law Clerk Marques Peterson: [email protected] Scot L. Folensbee, John C. Sullivan, STATE VP: [email protected] Member Services Jim Wagner RETIREE VP: [email protected] Director Janet Hedrick: [email protected] USAID REPRESENTATIVE: Thomas Olson USAID VP:[email protected] Representative Cory Nishi: [email protected] FCS VP: [email protected] Web site & Database Associate Meijing Shan: [email protected] FCS REPRESENTATIVE: William Crawford Administrative Assistant Ana Lopez: [email protected] FAS VP: [email protected] RETIREE REPRESENTATIVES: Gilbert Sheinbaum, Outreach Programs David E. Reuther, Theodore S. Wilkinson, III, Retiree Liaison Bonnie Brown: [email protected] AFSA News Director of Communications Thomas Switzer: [email protected] Stanley A. Zuckerman Editor Shawn Dorman: [email protected] Congressional Affairs Director Ken Nakamura: [email protected] IBB REPRESENTATIVE: Alex Belida

How to Contact Us: Contact to How (202) 338-4045 x 503; Fax: (202) 338-8244 Corporate Relations/Executive Assistant Austin Tracy: [email protected] FAS REPRESENTATIVE: Michael Conlon On the Web: www.afsa.org/news Scholarship Director Lori Dec: [email protected] Professional Issues Coordinator Barbara Berger: [email protected]

2 AFSA NEWS • SEPTEMBER 2004 AFSA BOARD MEMBER SWORN IN AS V.P. VOICE: STATE ■ BY LOUISE CRANE AMBASSADOR TO ANGOLA Cynthia Efird Iraq to Paris? Heads to Angola Don’t Hold Your Breath ecretary of State Colin Powell presided at the swearing-in ceremo- hich comes first, the assignment or the promotion? Sny for AFSA Governing Board The eternal conundrum. Let’s accept as a given that member Cynthia G. Efird, newly appoint- Wyou’re a proven performer. Now, some think it is ed U.S. ambassador to Angola, in a joyful a given that the place where you perform affects your chances for promotion. Personally, gathering in the State Department’s I am not convinced. There is important and substantive work being done in Buenos Benjamin Franklin Room on July 20. After Aires and Tokyo. This work is not confined to the Kabuls, Baghdads and other grave- giving an overview of Efird’s 27-year danger-cum-greater-hardship posts. If it were, then Paris, London and Rome would Foreign Service career as a public diploma- be among our lesser posts, which they manifestly are not. cy officer, Sec. Powell expressed his con- AFSA has spent several weeks visiting all the regional bureaus. We did this because fidence that she will rise to the challenges we see unaccompanied posts like Baghdad as needing a hefty annual influx of new tal- she faces in her assignment in Luanda, ent. Right now, there are 12 posts for which the assignments are for one year, unac- including assisting in preparations for the companied. This means more than 400 Foreign Service employees every year must country’s first democratic elections in 2006. bid on positions at these posts that by their very designation are not salubrious or con- Noting that AFSA has benefited from ducive to relaxation, touring or lounging by the sea under an umbrella with a fruit-gar- Efird’s service on the Governing Board, nished drink in hand. At several of these posts, for the good Lord’s sake, your living Powell commented that it is not the only space is half a shipping container with sand bags piled on the roof! And you have to body to benefit from Efird’s contributions. wear a helmet and body armor when you venture out. She is also a senior warden on the vestry Having spent a year under these conditions, employees will naturally seek a safe post of St. Paul’s K Street Episcopal Church in with good schools where their children will thrive, where there’s a chance to restore fam- Washington. He then administered the ily life, and where the pace won’t be so frenetic. My friends, there are not enough such oath of office. posts to satisfy all of you! In her remarks, Efird praised the Colleagues, the system cannot "reward" you all for hardship service. Here’s why. Secretary for his leadership and thanked The 400-plus annually who leave the dangerous, difficult and unaccompanied posts will her Foreign Service mentors and colleagues not all be sent on to Paris or Tokyo or Bermuda. Of the 254 posts the Foreign Service for teaching her the true meaning of staffs, 68 percent are designated hardship, and 50 percent (127) have a differential of “public service.” She then discussed the 15 percent or greater. That leaves only 30 percent of all posts in the category of non- importance of cultivating U.S.-Angolan hardship. relations and ensuring that the upcoming So, knowing that it will not be possible to reward the onward aspirations of those elections go smoothly so that the coun- exiting Kabul et al., AFSA sent the following messages to the regional bureaus and HR: try can fulfill its great potential. She con- “Look favorably at bidders who may be new to your bureau. Do not lock in your cluded by reading, first in Portuguese and favorite bidder early. It’s against the negotiated rules anyway. It will make AFSA mad then in English, a stirring patriotic poem and it violates transparency that the Service now needs more than ever. AFSA’s word by Angola’s founding president, Agostinho to the wise for management! You will not get the 400-plus bidders you need annual- Neto. ly unless there is the expectation their onward bids will be given due consideration.” In addition to Cynthia’s FSO husband, AFSA wants to see fair share applied with even greater rigor. If you or a dependent Neil, daughter and other family members, has a condition that precludes service at greater hardship posts, search for a hardship the audience included the Angolan chargé posting that MED will bless. One geographic bureau suggested that AFSA abandon d’affaires, many FS colleagues, and a con- our commitment to fair share, arguing it doesn’t begin to fill the need at hardship posts tingent from St. Paul’s including the rec- and is too easily gamed. Our response is that while we agree that the number of fair- tor, Father Andrew Sloane, who gave the share bidders in any one year (200 or so) does not begin to fill the slots at the hardship invocation. posts, it does share the sacrifice and it does demonstrate a commitment to worldwide AFSA will miss having Cynthia on the availability. Meanwhile, AFSA will continue to work to prevent gaming the system. CDA board but wishes Ambassador Efird all the should insist fair-share bidders with limited clearances prove there is no hardship post best for this new and challenging assign- that can accommodate them or their families. MED should try harder to help fair-share ment. ▫ bidders find onward assignments. ▫

SEPTEMBER 2004 • AFSA NEWS 3 PUSH FOR AUTHORIZATION BILL V.P. VOICE: FCS ■ BY CHARLES FORD Iraq Vets Urge FCS at a Quarter-Century: Funding for Have We Met Expectations? Difficult Diplomacy uring our last meeting with management to review the BY KRISTOFER LOFGREN, year’s accomplishments, we congratulated ourselves on EDITORIAL INTERN Dthe approval of important new policy documents. Bill Crawford and I presented an agenda for our second and final FSA President John Limbert and year as AFSA representatives that included support for major Consular Officer Beth Payne, both reform of the human resources office. Then talk turned to plan- A of whom recently returned from ning for the agency’s silver anniversary in 2005. While this ini- Iraq, were featured speakers at a June 17 tial discussion focused on planning a celebratory program, I AFSA press briefing at which they high- believe the silver anniversary also offers us the opportunity for lighted the challenges that Foreign Service more serious introspection. Have we met the expectations of the policy-makers who personnel face in Iraq today. Amb. saw the need for an independent foreign affairs agency to better promote U.S. com- Limbert and Ms. Payne called on the mercial interests abroad? Senate to pass the State authorization bill In terms of the quality of overall management of the agency by Commerce, it is in order to give Foreign Service personnel hard to be generous. Despite recent achievements resulting from hard work and strength- the support necessary to contribute to the ened cooperation between AFSA and management, the systemic challenges facing a small reconstruction of Iraq in a productive way. foreign affairs agency in a large Limbert recently returned from a In terms of the quality of overall domestic Cabinet department three-month assignment in Iraq and appear insurmountable. Payne served as a consular officer in Iraq management of the agency by The facts are striking. Almost from June 2003 to April 2004. Both offered all of the current members of our stark accounts of the dangers they encoun- Commerce, it is hard to be generous. Senior Foreign Service will retire tered in Iraq, which included several rock- within three years. Almost a third et attacks. of all officers are untenured or retiring. Rising costs have created pressures to restruc- Payne provided a brief account of her ture or close overseas offices. Despite these challenges, I am not aware of a strategic work and offered a poignant reminder of plan for recruitment, training or staffing overseas missions. the dangers that Foreign Service person- Staffing of the Office of Foreign Service Human Resources has been allowed to fall nel face each day. She recalled giving aid to historically low levels. In July, OFSHR had one staff member to serve 99 Foreign to a wounded colleague after a rocket attack Service employees, while the ratio was 1 to 48 in the department’s parent trade agency. on her hotel (for which she earned a hero- The Foreign Service personnel office has been chronically understaffed and under- ism award). Payne described the securi- graded and has never found a comfortable home at Commerce. Unacceptable service ty situation in Iraq for members of the has been the result. Selection Board results that used to take a few weeks to approve Foreign Service as “Russian roulette, not now languish for nine months. With enthusiastic AFSA support, over a year ago man- as a game, but as your work.” agement developed a plan to improve basic service, yet the department has not allowed Nevertheless, both Limbert and Payne it to go forward. Staffing levels have declined further, as has morale. expressed their determination to see Iraq In terms of FCS programs and services, there is no doubt that our business clients are more satisfied than before. But they cry out for a more strategic approach in a world where national interest and the interests of global companies are not the same as they were 25 years ago. With 11 director generals in 24 years, it is no wonder that our vision is firmly locked into the rear-view mirror. Guidance for determining the national interest for regulatory policy advocacy and new programs for service exports and investment are desperately needed if we are to be as energized and effective in the future as we have been in the past. FCS was created as a key component of the trade agenda of its day, but it no longer plays that central role. We must rethink and retool our approach to ensure that commercial diplomacy once again has a central role in the national trade agenda. As US&FCS makes plans to celebrate an anniversary next year, I welcome thoughts

on both the celebration itself, as well as the answer to the question of whether the agency Thompson Mikkela has lived up to the expectations that called for its creation in 1980. ▫ Beth Payne showing slides from Iraq.

4 AFSA NEWS • SEPTEMBER 2004 get back on its feet, despite the risks to per- V.P. VOICE: RETIREE ■ BY GEORGE JONES sonnel. Limbert called Iraq a “crucial mission,” and Payne said she would serve in Iraq again if necessary, saying, “it is too A Candidate for Diplomacy important [to refuse].” With the difficulties in Iraq and the n the fall of 1956, in the midst of the presidential election cam- determination of the Foreign Service as a paign, one of my fellow freshly-minted FSOs and I fell to dis- backdrop, Limbert questioned why diplo- Icussing politics. I asked him who he was for, and he said matic work has been shortchanged by he would vote for whoever he felt would do the most for the Congress. He noted that there has been Foreign Service. I was stunned. Here I was, trying to decide the fate of the world (which my vote would undoubtedly determine), and my friend was concerned exclusively about his job, looking for the candidate who would give the Foreign Service Limbert urged the Senate a greater role. I thought he was crazy. to end its “paralysis” and its Now, 48 years later, we are in the midst of another presidential election, and my views have moved closer to those of my friend. I still believe, then as now, that neither candi- “partisan politics and date is likely to make strengthening the Foreign Service one of his priorities, and expect- maneuvering,” and to approve ing either one to give any thought to it in the heat of a campaign was and is foolish. Nevertheless, both candidates back then were at least aware that we hada Foreign Service, the State authorization bill. and knew — we hoped — that our ability to carry out foreign policy successfully depended, at least in part, on its quality and dedication. But my friend was on to something beyond simple self-interest. What matters most no State authorization bill passed since is not whether the successful candidate for 1999. He said there has been a “failure of president sees the Foreign Service as impor- the legislature to support the civilian side tant, but whether he sees diplomacy as impor- What matters is which of the effort in Iraq.” Limbert urged the tant. If he does, then sooner or later in his candidate appreciates the Senate to end its “paralysis” and its “par- administration, he will come to recognize that tisan politics and maneuvering,” and to having the best Foreign Service in the world value of diplomacy in crafting approve the State authorization bill. working on behalf of the United States and and executing those policies. While the bill unanimously passed out its interests is an enormous asset that must be of the Senate Foreign Relations Committee maintained and rewarded. in March, the full body has not taken up At a time when American soldiers are being killed daily in combat, no one would the measure for a vote. Limbert asked question the importance of the military or its essential role in support of U.S. interests. whether perhaps the Senate did not feel that But if the war in Iraq has demonstrated nothing else, it has surely shown the limitations the work of the Foreign Service was impor- of what military force alone can achieve. When it became clear that military victory was, tant, and called on the senators to value the as always, just the beginning of the mission to be accomplished, two career FSOs — one “great hardship and sacrifice” of the as head of the Coalition Provisional Authority and the other as U.S. ambassador — were Foreign Service enough to pass an autho- successively called on to help create the conditions under which our military can be with- rization bill providing the resources need- drawn. Many other Foreign Service people are working to support these efforts. Foreign ed. Service retirees have written to ASFA asking whether they can serve in Iraq. Reporters from several major media As U.S. citizens and as members of the Foreign Service family, we need to insist that entities, including the Los Angeles Times, the candidates for president recognize that the United States, powerful as it is, cannot the Baltimore Sun, the Dallas Morning simply impose its will on the world and that to try to do so will do long-term damage News, the Federal Times, four major tele- to our interests. Carrying out a successful foreign policy means engaging the rest of the vision networks and three wire services, world in a dialogue about the kind of world we want and how to make it, and recog- attended the briefing. Articles about the nizing that our allies — and even sometimes our enemies — can contribute to that dia- briefing have appeared in the Los Angeles logue. A presidential candidate who does not believe in dialogue, in diplomacy, will not Times, the Federal Times, the Boston serve his country well. Globe, the Washington Post and on the And so my friend was right after all, even if it took me a half-century to admit it. Associated Press wire. Payne was also inter- What matters most is not which candidate claims to have the best policy for Iraq, North viewed on CNN-TV on June 26 as part of Korea, Venezuela or global warming. What matters is which candidate appreciates the the network’s coverage of the transfer of value of diplomacy, and therefore of the Foreign Service, in crafting and executing those sovereignty. ▫ policies. ▫

SEPTEMBER 2004 • AFSA NEWS 5 CONTROVERSY AT VOICE OF AMERICA AFSA Member VOA Employee Petition Achievement Award Laments “Dismantling” C. Edward Dillery BY SHAWN DORMAN mbassador C. Edward Dillery was honored with the 2004 AFSA Member Achievement Award for his contributions to Foreign ver 450 current Voice of America employees — represent- AService youth through his many years of service as chair of the ing almost half of the agency’s work force — have signed AFSA Scholarship Committee. Following a distinguished 38-year Oa petition protesting what they see as a growing loss of inde- Foreign Service career, pendence of the agency. The petition, submitted to Congress July Amb. Dillery has continued to serve the Foreign 6, accuses the managing Broadcasting Board of Governors of set- Service. He has given ting out to dismantle the 62-year-old service, and calls for an imme- countless hours of his diate congressional inquiry. time to the AFSA scholar- “U.S. international broadcasting is seriously threatened,” the peti- ship program, which helps support Foreign tion begins, “at a time when strong and substantive American voic- Service children with es to other countries are more important than ever. Although broad- funds for college. cast hours have been increased to the Middle East and Islamic world, Dillery has also served as taxpayer-funded, pop-music networks have replaced comprehen- the AFSA vice president for retirees. He lends Mallin Jay sive news reporting and analysis there. … Since 9/11, actions taken further assistance to the Amb. Ed Dillery (right) receives the AFSA by the Broadcasting Board of Governors (the oversight entity for association as a speaker Member Achievement Award from AFSA U.S. international broadcasting) have limited the scope and effec- for AFSA-sponsored President John Limbert. tiveness of the Voice of America and its sister grantee radios.” Elderhostel programs. Many of the VOA employees see the July 1 transfer of VOA The AFSA Scholarship Committee (also known as the Committee on Education) oversees the administration of the AFSA Scholarship News Director Andre de Nesnera to a correspondent position as Program. This includes the Academic Merit and Art Merit Awards part of the board’s Program, which bestows awards in the spring, and the Financial Aid The petitioners expressed move to gain more Awards Program, which bestows awards in the fall. Every year the political control over committee awards approximately $150,000 to Foreign Service depen- concern that the new formats dents around the world. The committee determines the policies of the broadcasting. De scholarship program, reviews the performance of its $4.5-million were not established under the Nesnera, known for endowment, provides guidance on fundraising and other scholarship his strong commit- issues, and monitors the scholarship program budget. 1976 VOA Charter. ment to balanced “Ed presides over the scholarship committee meetings and is a great chair,” says AFSA Scholarship Administrator Lori Dec, who reporting, was hon- works closely with him. “Even with short notice he is always available ored with an AFSA constructive dissent award in 2002 for his insis- to represent the AFSA Scholarship Committee, be it attending the tence on airing an interview with Taliban leader Mohammed Omar AFSA Finance Committee meeting or accepting a scholarship check.” despite strong pressure not to do so. Dillery joined the Foreign Service in 1955 and during his long career served in Tokyo and Kobe; Brussels; Quang Ngai (during The board has established various new entities to broadcast into the Vietnam War); London; Nicosia; Suva; and Washington, D.C. the Middle East, including Radio Sawa, al-Hurra (TV) and Radio His last overseas posting was as ambassador to Fiji from 1984 to Farda (for Iran). It has decided to pull Radio Free Iraq, which broad- 1987, where he was also accredited to Tuvalu, the Kingdom of cast in Arabic, as of Sept. 30. The petitioners expressed concern Tonga and the Republic of Kiribati (the former Gilbert Islands). After retiring from the that the new formats were not established under the 1976 VOA Foreign Service in 1993, Charter, which was designed to ensure that VOA provides a “reli- he served for one year in able and authoritative source of news” and to prevent government the office of the under interference with reporting. The new programs offer a mix of news secretary of state for and entertainment, with much less time devoted to news than the management. Amb. Dillery was traditional VOA programming. born in Seattle, Wash. Broadcasting Board of Governors Chairman Kenneth Tomlinson He earned his B.A. from issued a statement in response to the petition, noting that the pro- Seattle Pacific University fessional standards of the new programs are “similar to those of and an M.S. degree from The George Washington the 1976 VOA charter” and that all services must follow the “high- University. He and his est professional standards of broadcast journalism.” He also stat- wife, Marita, have three Amb. Dillery presents a scholarship certified that the news coverage must be “consistently reliable, authori- children and eight grand- cate to 2004 merit award winner Michael Young on Foreign Affairs Day, May 7. tative, accurate, objective and comprehensive.” ▫ children.

6 AFSA NEWS • SEPTEMBER 2004 AFSA 2004 Post Representative of the Year Award (This award replaces the Active Member Achievement Award, and now comes with a cash prize.) David Jesser Randy J. Kreft Embassy Pretoria Embassy Moscow

avid Jesser was chosen as an AFSA Post Representative of the andy J. Kreft was selected as a winner of the 2004 AFSA Post Year for his work in Pretoria. Jesser previously served as AFSA Rep of the Year Award for his work as the AFSA representative Drep in Muscat. “His sustained diligence as an AFSA rep for Rfor Embassy Moscow. The management officers who nominat- nearly five years makes him a worthy recipient of the AFSA Post Rep ed him noted that in their combined 50-plus years in the Foreign of the Year award,” says AFSA Labor Management Specialist James Service, “Randy is the single-best AFSA representative we have seen. Yorke. Jesser is consistently available for AFSA members when they … He combines the attributes of passion and judgment in a balanced need help, and has skill- fashion, speaking in a forceful yet judicious voice on behalf of Foreign fully translated his role Service employees as a reasoned interlocutor with management.” as AFSA rep into an In Moscow, Kreft has made sure he is accessible to all members, effective advocacy posi- has kept his ear to the ground, and has been diligent in making sure tion. He also does an that AFSA headquarters is aware of issues that need attention. He has outstanding job of been so effective at post because he developed a relationship with keeping AFSA head- embassy management based on mutual trust. The high regard in quarters up-to-date on which he is held allowed him to effectively represent his clients. The employee concerns workplace in Moscow was the better for this constructive relation- at post. Jesser discussing AFSA issues with ship. Jesser explains that as Management Counselor Elizabeth P. Hinson. Kreft is a proactive AFSA representative. He meets quarterly with AFSA became more the deputy chief of mission, briefing him on specific concerns that involved with issues of concern to employees have as well as on the general state of morale at Embassy specialists in the mid-1990s, his Moscow and the consulates. Kreft’s temporary duty travel allows contact with AFSA increased. him to be an extra set of eyes for the DCM at the constituent posts. With help from an AFSA lawyer Kreft regularly sits in on briefings for newcomers. He wants peo- and support from the OIG, Jesser ple to know his face — not just his telephone number. For the new- won a grievance case. “Buoyed by comers, he provides an informative but brief presentation about what

all the support and guidance AFSA Mallin Jay an AFSA rep can do. He reminds people that if they are to be inter- had given me in correctly address- Jesser receiving his award from viewed by the regional security officer on any matter, they may ing that particularly difficult issue AFSA President John Limbert. request that the AFSA rep sit in on that interview. Kreft also makes it in the workplace,” Jesser says, “I clear that his door is open to any employee for consultations, AFSA enthusiastically became an AFSA rep at an onward assignment.” member or not, U.S. citizen or not. Over the past two years, Jesser has worked hard to secure benefits While Kreft has intervened on behalf of post employees in for those at post in the “administrative and technical” staff category. numerous cases, one example bears noting. When the Russian State A & T personnel in Pretoria are not given the same benefits as those on Customs Committee began holding up shipping entitlements for the “diplomatic list.” In Pretoria, Jesser investigated reciprocity issues in administrative and technical staff, he played an important role in liais- an effort to lessen the hardships on A & T personnel. In one example, ing between post management and members at post. His involve- he determined that South African A & T personnel serving in the U.S. ment helped keep a difficult situation from becoming divisive within were allowed to purchase a car duty-free during the duration of their the embassy community. assignments, while American A & T personnel in South Africa could Summing up his many contributions, the officers who nominated only do so during their first six months at post. The result of his advo- Kreft say: “Randy’s proactive, constructive skills and abilities as an cacy on this issue was inclusion in an OIG inspection report of a AFSA representative are key to resolving problems early and making recommendation that post and the Office of Foreign Missions take this mission the great workplace it is.” steps to rectify the inequity. In addition, he worked to eliminate the Randy Kreft was inequity that gives access to Pretoria’s duty-free stores to American mis- born in Twin Falls, sion members on the diplomatic list but not to A & T personnel. Idaho, and graduated “The job of AFSA rep is what ones makes of it,” he says. “I see it from Idaho State as a valuable leverage tool between embassy staff and post manage- University School of ment when circumstances warrant.” When difficult situations arise, Applied Technology in the choice, says Jesser, “is to stick my head in the sand and grin and Laser Optics. He served bear it, or to speak out against unpopular issues and policies. I chose in the U.S Army from the latter and, in turn, AFSA ensured that I never had to go it alone.” 1983 until 1992, joining David Jesser was born in Providence, R.I. He has a B.A. and an the State Department in A.A. from the University of Maryland. He served for four years 1994. He has served in with the U.S. Coast Guard before joining the Foreign Service in Washington, Frankfurt

1988 as an information management specialist. He has served in Mallin Jay and Moscow. He and Hong Kong, Cairo, The Hague, Muscat and Pretoria, and is mar- AFSA President John Limbert presenting the his wife, Petra, have a ried to Joann Wernig. Post Rep Award to Randy Kreft on June 24. young daughter.

SEPTEMBER 2004 • AFSA NEWS 7 LEGISLATIVE UPDATE AFSANEWSBRIEFS Going Nowhere Fast: Continued from page 2 State Authorization Bill Turn It Off in D.C. On July 1, using a cell phone without BY VICTORIA SPROW, LEGISLATIVE AFFAIRS INTERN a hands-free device while driving in the District of Columbia became illegal. The FSA has been persistent in its requirements for Sudan, Libya and Haiti. penalty is a fine of $100 and a point on attempts to help bring the State The request for worldwide security pro- the driver’s record. The law applies to ADepartment authorization bill to grams has been met at $1.5 billion, allow- all drivers in the city, regardless of place conference. Although the House passed its ing for 71 new diplomatic security positions. of residence. The language of the bill version of the bill, H.R. 1950, in May 2003, There was good news for the increasingly can be found at the D.C. Council’s Web the Senate’s S. 2144 has still not been con- important public diplomacy function: site: http://www.dccouncil.washington. sidered on the floor. Despite the bill’s non- the House appropriated $319 million for dc.us/images/00001/20030110124412 controversial nature, as well as Senator public diplomacy, $10 million above .pdf Lugar and Senator request. The bill also Biden’s strong support, funds a new Office of BOOKFAIR Opens Oct. 15 approaching elections AFSA has responded by Stabilization and Recon- For months, volunteers have been and increased politiciza- voicing its disappointment struction and continues preparing for the 44th Annual tion resulted in the sus- to support the concept of BOOKFAIR of the Associates of the pension of this key piece over the Senate’s inaction. “rightsizing.” American Foreign Service Worldwide. BOOKFAIR opens on of legislation. AFSA expects the Friday, Oct. 15, at 2 p.m. in the AFSA responded by voicing its disap- Senate will take up CJS appropriations Exhibit Hall at Main State. pointment over the Senate’s inaction. In when Congress returns from recess in Employees and their escorted guests, late June, AFSA launched an extensive press September. and retirees and their spouses, are campaign in an attempt to publicize the cordially invited. During the week, importance of the bill, which contains sig- Comparability Pay from Oct. 18 through 22, this same nificant provisions for the Foreign Service. AFSA persists in seeking to eliminate the group of people will be admitted Because of limited floor time, however, the pay disparity between the Foreign Service from 11 a.m. to 3 p.m. BOOKFAIR Senate did not vote on S. 2144. AFSA will abroad and in the U.S. Overseas (non- is open to the general public on two weekends: Oct. 16-17 and Oct. 23-24 continue to seek passage of the provisions Senior) personnel currently do not receive from 10 a.m. to 4 p.m. each day. important to the Foreign Service. the 15-percent increase in salary that per- Some items are marked down to sonnel at home earn in the form of local- half-price on the final day of the fair. Appropriations ity pay. The Senior Foreign Service pay VISA, MasterCard and checks are The Defense Appropriations bill made scale, however, was switched to a pay-for- accepted. Questions? Please call: its way rapidly through the House and the performance system in January to rectify (202) 223 5796. Senate. The bill was reported out of con- this problem, in effect creating a two-tiered ference on July 22. It included $95 million Foreign Service abroad. As a result, diplo- Position with FSYF in humanitarian aid for Sudan and $685 matic readiness and morale have been The Foreign Service Youth Foundation million for Embassy Baghdad ($665.3 mil- undermined. AFSA is consulting with the is seeking a Foreign Service Teen lion for diplomacy and consular programs, State Department and others to resolve Community Service Program Director in and $20 million for embassy construction). these discrepancies and develop an accept- the Washington, D.C., area. The pro- Appropriations for the Commerce- able salary program. gram director develops, implements Justice-State bill, however, were still under and oversees monthly Foreign Service way as of this writing in late July. The bill Retiree Issues teen community service events in the was passed by the House in early July with AFSA supports the repeal of the Northern Virginia area. The salary is an appropriation of $8.4 billion for the State Windfall Elimination Provision and reform $20 to $25 per hour for five to seven Department, a 5.3 percent increase from of the Government Pension Offset, both hours per week. Hours are flexible, but Fiscal Year 2004 appropriations. Although of which reduce Social Security benefits for the candidate must be available on this amount is $121.4 million below the some FSRDS annuitants. AFSA also con- some weekends and afternoons. Please administration’s request, it does allow for tinues to monitor legislation regarding contact FSYF Executive Director Melanie 110 new positions in visa adjudication, pub- Premium Conversion and Prescription Newhouse at [email protected] for a full job lic diplomacy, and anticipated staffing Drug Parities. ▫ description. ▫

8 AFSA NEWS • SEPTEMBER 2004 the day you move into your new hous- Photographs: Take photographs of ing. Obviously, you need to take care of carpets and furniture. Make sure you everything in your apartment or house note the date the photograph was taken during your occupancy. But it is also very and give copies to the Housing Office or important to make sure that all parties — GSO. Q&A you, the GSO and the Housing Office — Track Changes: Make sure that any are aware of what is provided to you and changes to the inventory during your its condition when it first comes into your occupancy are promptly and accurately Personnel possession. There are several ways of documented, and take photographs if doing this: necessary. Care for Inventory Inventory: Make sure that the inven- Next, throughout your occupancy, tory is accurate, that it shows all the items you should take care that the furniture BY JAMES YORKE, LABOR that you have in your house or apartment, and fittings are treated well. If any dam- MANAGEMENT SPECIALIST and none that you do not have. age occurs, make a note of the extent of Q: When I left my last post, the General List condition: Make sure that the it and when and how it occurred. This Services Office charged me for damage condition of each item is noted on the will ensure that you are not taken by sur- to carpets and furniture in my apartment. inventory. If there are any stains, wear prise when the check-out inspection turns How can I avoid this at my new post? or damage on any furniture, carpets or up any damage, and will enable you to This is something that you fittings, then be precise about where the identify damage that was not caused by A: need to pay attention to from damage is located and its nature. you or your family. ▫

Awards • Continued from page 1 honor but noting that “post management trump experience or imagination to trump has neither recognized our work nor reality.” In the finest tradition of courageous acknowledged the award.” dissent, while Mines did not agree with the Amb. C. Edward Dillery was honored policy, he was nevertheless one of the first with the AFSA Member Achievement to volunteer for an Iraq assignment. Award for his service as chair of the Diplomatic Courier Elizabeth A. Scholarship Committee. David P. Jesser Orlando was honored with the F. Allen and Randy J. Kreft earned the AFSA Post “Tex” Harris Award for her efforts to inter- Rep of the Year Award for their determined cede on behalf of coworkers facing unfair efforts on behalf of AFSA members in Jay Mallin Jay treatment. Orlando said her belief that “you Deputy Assistant Secretary for Near East Affairs Pretoria and Moscow, respectively. (Articles treat people well” led her to risk her career David Satterfield (left) presents the Herter Award on these winners begin on page 6.) for the sake of others, and that winning the to Ronald Schlicher. Following the ceremony, several media Harris Award was a “huge morale boost.” entities carried articles highlighting the The W. Averell Harriman Award for accomplishments of the dissent honorees. constructive dissent by a junior officer went On June 28, theWashington Post ran a half- to Steven T. Weston. Weston, however, was page story, with particular emphasis on in Ireland staffing President Bush’s visit and Mines. The Agence France-Presse and the was unable to attend. His colleague at Associated Press also carried stories about

Embassy Luxembourg, Mary Jo Fuhrer — Mallin Jay the event. Barry Schweid’s AP article, which herself the winner of the Nelson B. AFSA Award winners during the June 24 awards focused largely on Schlicher’s influential Delavan Award for extraordinary contri- ceremony. From left: Keith Mines, Betsy Orlando, decisions on Near East policy, was picked butions by an office management special- Mary Jo Fuhrer, Jenny Jeras and Susanne Turner. up by dozens of newspapers around the ist — accepted the award on his behalf. world, including the New York Times, the Fuhrer shared the Delavan Award with Bishkek. Helene Dejong and Dawn Sewell Guardian, the Los Angeles Times, the Jenny A. Jeras, OMS at Embassy Kabul, McKeever were awarded the Avis Bohlen Miami Herald, the San Francisco Chronicle who joked that she was “thankful for the Award for their assistance to underprivi- and the Charlotte Observer. chance to get out of Kabul.” leged communities in Uganda, especially The ceremony was followed by a recep- Susanne A. Turner was recognized with through work on literacy and library expan- tion in which attendees could personally the M. Juanita Guess Award for her efforts sion. Unable to attend the ceremony, they congratulate award recipients on their disas community liaison officer at Embassy sent a message thanking AFSA for the tinguished service and spirited dissent. ▫

JUNE 2004 • AFSA NEWS 9 CLASSIFIEDS

TAX & FINANCIAL SERVICES PROFESSIONAL SERVICES Ro l a nd s. Hea Rd, c pa Hel en Rudinsk y, Ma RRia g e/ FRee Tax consul TaTion: For over- 1091 Chaddwyck Dr. Fa Mil y THeRa pisT, lecturer for Foreign seas personnel. We process returns as Athens, GA 30606 Service Youth Foundation/Overseas Briefing received, without delay. Preparation and rep- Tel/Fax: (706) 769-8976 Center with over 20 years overseas experi- resentation by Enrolled Agents. Federal and E-mail: [email protected] ence. Assisting couples, families and children all states prepared. Includes “TAX TRAX” • U.S. income tax services with relationship issues: Dual Career, unique mini-financial planning review with rec- • Many FS & contractor clients Accompanying spouse, Bi-cultural partners, ommendations. Full planning available. Get the • Practiced before the IRS family separation, and TCKs. most from your financial dollar! Financial • Financial planning Tel: (202) 248-6280, Forecasts inc., Barry B. De Marr, CFP, EA, • American Institute of CPAs, Member e-mail: [email protected] 3918 Prosperity Ave. #230, Fairfax, VA 22031 FIRST CONSULTATION FREE www.helenrudinsky.com Tel: (703) 289-1167, Fax: (703) 289-1178. WWW.ROLANDSHEARDCPA.COM LEGAL SERVICES E-mail: [email protected] Fina nc ia l a dviso R: Stephen H. a TTo Rney WiTH 22 years successful Thompson, Legg Mason Wood Walker Inc. experience SPECIALIZING FULL-TIME IN FS Member NYSE, Member SIPC (Retired pRo Fessio na l Ta x ReTuRn GRIEVANCES will more than double your Foreign Service officer). pRepa Ra Tio n: Thirty years in public tax chance of winning: 30% of grievants win Tel: (202) 778-1970 or (800) 792-4411. practice. Arthur A. Granberg, EA, ATA, ATP. before the Grievance Board; 85% of my clients E-mail: [email protected] Our charges are $75 per hour. Most FS returns win. Only a private attorney can adequately Web site: www.sthompson.fa.leggmason.com develop and present your case, including nec- take 3 to 4 hours. Our office is 100 feet from essary regs, arcane legal doctrines, prece- Virginia Square Metro Station, Tax Matters dents and rules. c all Bridget R. Mugane at Associates PC, 3601 North Fairfax Dr., Tel: (202) 387-4383, or (301) 596-0175. Arlington, VA 22201. Tel: (703) 522-3828. viRg inia M. TesT, c pa : Tax service E-mail: [email protected] Fax: (703) 522-5726. specializing in Foreign Service/overseas con- Free initial consultation. E-mail: [email protected] tractors. c o nTa c T inFo : (804) 695-2939, Fax: (804) 695-2958. E-mail: [email protected] ATTORNEY gRievance aTToRney (specializing a TTo Rney, Fo RMeR Fo Reig n seR- a MeRic a n expRess Fina nc ia l since 1983). Attorney assists FS officers to cor- vic e o FFic eR: Extensive experience w/ tax advisoRs: Wayne Parris, former Capitol Hill rect defective performance appraisals, to problems peculiar to the Foreign Service. employee, provides custom solutions to chal- reverse improper tenuring and promotion Available for consultation, tax planning, and lenges FSOs face when planning for retire- board decisions, secure financial benefits, preparation of returns: ment. Our comprehensive investment plan- defend against disciplinary actions and obtain M. Bruce Hirshorn, Boring & pilger, p.c . ning process provides peace of mind and relief from all forms of discrimination. Free Initial 307 Maple Ave. W, Suite D, security at home and abroad. Tel: (703) 902- Consultation. Call William T. irelan, esq. Vienna, VA 22180. Tel: (703) 281-2161. 8977 or e-mail: [email protected] for Tel: (202) 625-1800. Fax: (202) 625-1616. Fax: (703) 281-9464. complimentary financial review. E-mail: [email protected] E-mail: [email protected]

Wil l s/esTa Te pl a nning by attorney PROPERTY MANAGEMENT who is a former FSO. Have your will reviewed and updated, or new one prepared: pRoFessional Financial pl an- Strategic Planning for your No charge for initial consultation. ning -Fee o nl y: H.a . g il l & so n, inc .: Family-owned financial retirement, education, and investment M. Bruce Hirshorn, Boring & pilger, p.c . and operated firm specializing in the leasing objectives. Thomas L Potter, Harvard MBA, 307 Maple Ave. W, Suite D, and management of fine single-family Executive Certificate in Financial Planning, Vienna, VA 22180. Tel: (703) 281-2161. houses, condominiums and cooperatives in Georgetown University. $75 per hour; free ini- Fax: (703) 281-9464. Washington, D.C. and Montgomery County tial consultation. Financial Matters Associates, E-mail: [email protected] since 1888. While we operate with cutting- 3601 North Fairfax Dr., Arlington, VA 22201. edge technology, we do business the old-fash- Tel. (703) 451-2582. E-mail: [email protected] ioned way: providing close personal attention a TTo Rney Ha ndl ing g Rieva nc es to our clients and their properties. We provide at State, Commerce, USAID. Appeals or liti- expertise in dealing with jurisdictional legal gation before the FSGB, MSPB, EEOC, requirements, rent control, property registra- DOHA. Federal litigation before the U.S. pl a c e a c l a ssiFied District Court re all forms employment discrim- ad: $1.25/word (10-word min.) First tion and lead paint requirements. We closely ination. Will write your complaint or grievance, 3 words bolded free, add’l bold text screen all tenant applications and are online represent you at hearings, litigate your $2/word, header, box, shading $10 with Equi-fax Credit Information Services which actions, and brief your appeal. Offices D.C. ea. Deadline: 20th of the month for provides our firm with instantaneous hard-copy George Elfter at Tel: (202) 237-2047; publication 5 weeks later. credit reports. You can rest assured while you Fax: (703) 351-6157. Ad Mgr: Tel: (202) 944-5507. are abroad that your property will be in the E-mail: [email protected] Fax: (202) 338-6820. most capable hands. Please call John Gill Jr. Web site: www.georgeElfterLaw.com E-mail: [email protected] at (202) 338-5000 or e-mail him at:

10 AFSA NEWS • SEPTEMBER 2004 CLASSIFIEDS pRopeRTy ManageMenT geoRgeToWn … capiTol Hil l … WHy do so Many FoReign seRvice WJd Ma na g eMenT is competitively ea sT end. No down payment — no sweat. peRsonnel use priced, of course. However, if you are consid- www.EquityFundGroup.com. aMeRican sTandaRd MoRTgage? EFRealty e-mail: [email protected]. ering hiring a property management firm, don’t 1. Rates as low as 2.95% forget the old saying, “You get what you pay 2. Minimal paperwork for.” All of us at WJD have worked for other 3. Fast/superior services property management firms in the past, and We have experience handling the mortgage we have learned what to do and, more impor- process for clients who are out of the coun- tantly, what not to do from our experiences at o ne-BedRo o M c o TTa g e For Rent. try. If you are purchasing or refinancing a home these companies. We invite you to explore our Minute walk from rear gate of FSI. Short/long- please call Jim Fagan at (703) 757-5800, or Web site at www.wjdpm.com for more infor- term. Laundry, parking, skylights, fireplace, e-mail him at [email protected]. mation, or call us at (703) 385-3600. patio. Kitchenette. $1,500/month. Pets con- Foreign Service references available. sidered. Tel: (202) 415-0556; (703) 920-0852. TEMPORARY HOUSING REAL ESTATE sHo RT-TeRM RenTa l s coRpoRaTe apaRTMenT special isTs: Joann piekney/ pRudenTial caR- Abundant experience working with Foreign RuTHeRs Rea l To Rs: Complete profes- Service professionals and the locations to best TeMpo Ra Ry Ho using sional dedication to residential sales in serve you: Foggy Bottom, Woodley Park, Northern Virginia. I provide you with person- Cleveland Park, Chevy Chase, Rosslyn, al attention. Over 22 years’ real estate expe- Ballston, Pentagon City. Our office is a short walk WasHingTon, d.c. or nFaTc TouR? rience and Foreign Service overseas living from NFATC. One-month minimum. All furnish- execuTive Housing consul TanTs experience. JOANN PIEKNEY. ings, housewares, utilities, telephone and cable offers Metropolitan Washington, D.C.’s finest Tel: (703) 624-1594. Fax: (703) 757-9137. included. Tel: (703) 979-2830 or portfolio of short-term, fully-furnished and E-mail: [email protected] (800) 914-2802. Fax: (703) 979-2813. equipped apartments, townhomes and sin- Web site: www.foreignservicehomes.com Web site: www.corporateapartments.com gle-family residences in Maryland, D.C. and E-mail: [email protected] Virginia. In Virginia: “River Place’s Finest” is steps to Rosslyn Metro and Georgetown, and 15 pied-a -TeRRe pRo peRTies, l Td: Headed To d.c.? Start planning now for minutes on Metro bus or State Department Select from our unique inventory of fully-fur- house hunting in Northern Virginia. Let my 16- shuttle to NFATC. For more info, please call nished & tastefully decorated apartments & plus years of experience providing FS per- (301) 951-4111, or visit our Web site: townhouses all located in D.C.’s best in-town sonnel with exclusive Buyer Representation www.executivehousing.com neighborhoods: Dupont, Georgetown, Foggy work for you. My effective strategy for home Bottom & the West End. Two-month minimum. buying will make the transition easier for you Mother-Daughter Owned and Operated. and your family! Tel: (202) 462-0200. Fax: (202) 332-1406. geoRgeToWn quaRTeRs: Exquisite, Contact MaRil yn canTRel l , Associate E-mail: [email protected] fully-furnished accomodations at the East End Broker, ABR, CRS, GRI at McEnearney www.piedaterredc.com of Georgetown. Short walk to World Bank Associates, 1320 Old Chain Bridge Rd., and State Department. Lower floor of three- McLean, VA 22101. Tel: (703) 790-9090, level home built in 1803 and renovated in ext. 246. Fax: (703) 734-9460. TeMpoRaRy quaRTeRs aRl ingTon: 2003. Private front and rear entrances, eight- E-mail: [email protected] Fully furnished, 2- bedroom, 2-level condo, 2 foot ceilings, fireplace, marble bathroom with www.marilyncantrell.com miles to NFATC in Fairlington. Walk to shops/ jacuzi and shower, granite and stainless steel restaurants. Pets OK. Rate commensurate w/ kitchen, washer and dryer, walk out to tiered housing allowance. John Jobin Realty. rear garden great for entertaining. Street Tel: (703) 702-8416. parking and limited car/pick-up sharing with WasHingTon sTaTe isl ands: Spectacular E-mail: [email protected]. management. Dishes, flatware, towels, linens views, wonderful community, climate, boating, hik- and light maid service included. Preference ing. Access Seattle & Vancouver, B.C. Former FuRnisHed l uxuRy a pa RTMenTs: for single person or couple. Rate commen- FSO Jan Zehner, Windermere Real Estate/ Short/long-term. Best locations: Dupont Circle, surate with housing allowance. Photos avail- Orcas Island. Tel: (800) 842-5770. Georgetown. Utilities included. All price able. Contact: Tel. (202) 625-6448, www.orcashomes.net. ranges/sizes. Parking available. E-mail: [email protected], E-mail: [email protected] Tel: (202) 296-4989. E-mail: [email protected] www.EquityFundGroup.com Fl o Rida Bo uTiq ue a pa RTMenTs: One-bed- MORTGAGE room and studio apts. Newly renovated by l o ng Bo a T k ey, BRa denTo n/ architect. Elegantly furnished and complete- sa Ra so Ta : Area will exceed expectations. ly equipped. Utilities and weekly housekeep- Buying o R ReFina nc ing a Ho Me? Don’t miss owning in Florida. Resales, new ing included. Will work with per-diem sched- Save money with some of the lowest rates in homes, rental management and vacation ule. Excellent Cathedral/Mass Ave. location 40 years. Jeff Stoddard specializes in work- rentals. Dynamic, growing company offering in quiet prewar building. Excellent bus trans- ing with the Foreign Service community over- personalized professional service. Contact: portation. Tel: (202) 285-3566. E-mail: seas and in the U.S. Call today and experi- Sharon E. Oper, Realtor (AFSA Member) [email protected]. For pictures go ence the Power of Yes! ® Tel: (703) 299-8625. Wagner Realty. Tel: (941) 387-7199. to: www.cflp.com/apt.htm. E-mail: [email protected] E-mail: [email protected]

SEPTEMBER 2004 • AFSA NEWS 11 CLASSIFIEDS

Bl a c k Mo unTa in, nc : 15 min. from BOOKS 110 - 220 vo l T sTo Re Asheville, named 8th most ideal place to live Mul Ti-sysTeM el ec TRo nic s in USA. Many FSOs retire here — but not The LasT Wor d: By James K. Welsh just a retirement community. Ideal family Jr. Outspoken account of lifetime spanning pa l -sec a M-nTsc Tvs, home full of light, 5 bedrooms, 3 full baths, five continents as disciplined youth, naval per- VCRs, AUDIO, CAMCORDER, big custom kitchen, hardwood floors, energy son, front-office diplomat, adventurous avia- ADAPTOR, TRANSFORMERS, efficient, 2 fireplaces, 3,100 sq. ft. plus 1,800 tor, budding politician, gentleman farmer, KITCHEN APPLIANCES ft. on ground level (above ground) possible ordained Catholic deacon. Two bicultural mar- gMs WoRl d Wide pHones for office, recreation or apt. In county (less riages. $27.00. To purchase: epoRT WoRl d el ecTRonics taxes), close to town and Interstate. http://www.trafford.com/robots/03-2469.html. 1719 Connecticut Ave NW Stimulating community, many cultural and (Dupont Circle Metro. Btwn. R & S Sts.) intellectual opportunities and recreation, golf, Tel (202) 232-2244 or (800) 513-3907 tennis, swimming, hiking, exercise programs. E-mail: [email protected] Plenty of volunteer opportunities, too — come ol d asia/oRienT Books BougHT URL: www.eportworld.com join us for the good life. Gay Currie Fox, Real Asian rare books. Fax: (212) 316-3408. neW l ocaTion Estate, Inc. P.O. Box 308, Black Mountain, E-mail: [email protected] 1030 19TH sT. nW (between K & L Sts.) NC 28711. Tel: (828) 669-8027, Washington, D.C. 20009, E-mail: [email protected] your donations for Tel (202) 464-7600. www.gaycurriefox.com THe a a FsW needs BookFaiR — an October event for 44 years. inq uiRe a Bo uT o uR pRo Mo Tio ns Artwork, books in good condition, stamps and g overnment & diplomat discounts no sTa Te inc o Me Ta x enhances gra- coins all gratefully accepted. Handicrafts from cious living in Sarasota, the cultural capital of post are especially welcome, PET TRANSPORTATION Florida’s Gulf Coast. Contact former FSO paul peT Moving Made easy. Club Pet Byrnes, Coldwell Banker residential sales spe- in THe Wa sHing To n a Rea : For pick-ups International, is a full-service animal shipper cialist, by e-mail: [email protected], or call: Virginia Jones at (202) 223-5796. IN THE who specializes in local, national and interna- Toll-Free: (877) 924-9001. DEPARTMENT: Donations drop-off at the tional trips. Club Pet is the ultimate pet-care BOOKROOM (Rm. B816) Mon-Fri, noon to boarding facility in the Washington 2:00 P.M., or by appt. Metropolitan area. Located in Chantilly, Va. univeRsiTy pa Rk sa Ra so Ta / Club Pet is ABKA-accredited, and licensed by BRadenTon aRea: Short- or long-term: FRoM oveRseas: Donations may be the USDA as well as the TSA as an Indirect Large, elegant, turnkey furnished pool villa with pouched to: AAFSW BOOKROOM, B816 Air Carrier. Tel: (703) 471-7818 or (800) 871- lake view in golf course community; 2 bdrms, Main State (HST). 2535. E-mail: [email protected]. 1 2 /2-baths plus den, fireplace. Near airport and beaches and Sarasota’s theaters, shops and BUSINESS CARDS restaurants. Contact: Paulina Kemps or SHOPPING Jennette E. Rossi at Wagner Realty. Business caRds printed to State Tel: (941) 953-6000, or toll-free: (888) 691-1245. nuTRiTio na l so l uTio ns viTa Mins Department specifications. 500 cards for as and THings: Herbs, vitamins, homeo- little as $37.00! Herron Printing & Graphics. VACATION pathics, flower remedies, body care, books, Tel: (301) 990-3100. and more! We offer high-quality products that E-mail: [email protected] produce dependable health benefits. Visit us JupiTeR Bea c H, Fl : Ocean Front, 3- at www.yellnutrition.com to question our 1 bedroom, 2 /2-bath condo available with pool, knowledgeable staff and to place your orders MISCELLANEOUS gym and tennis. Golf courses close by. or call us at: (703) 271-0400. Minimum three months rental. Tel: (703) 960- 3386. E-mail: [email protected]. l ooking FoR caR paRTs? EFM with vast experience in car parts and accessories on THe go 4 u: Personal Shopping, can locate the right item for your needs at the Concierge Service, Personal Assistant, Event best price and ship to you via APO or pouch. no RMa ndy, FRa nc e: Large, comfort- Planning. Personal shoppers scaled to fit bud- Contact me at: rolandoaguilera2003@ able farmhouse near D-Day Beaches for get and needs. Service provided to those hotmail.com for information and pricing. weekly rental. E-mail: [email protected] or overseas. Tel: (202) 538-7422. www.laporterouge.net. E-mail: [email protected] www.onthego4u.net. s Hip p in g HoMe l eave on saniBel : Former FSO offers 2-bedroom, 2-bath condo on We Ma k e g Ro c eRy sHo pping pl anning To Move oveRseas? Sanibel Island, Florida. Steps from famous ea sy! If you miss groceries from back home, Need a rate to ship your car, household goods, seashells and pristine beach of this vacation visit www.lowesfoodstogo.com. We ship non- or other cargo going abroad? Contact: Joseph paradise. Available on monthly and weekly perishable groceries to you via the Dulles mail T. Quinn. at SEFCO-Export Management basis. Tel: (703) 827-0312. sorting facility. Voila . . . food from home! Company for rates and advice. E-mail: [email protected] for availabil- For more information e-mail: Tel: (718) 268-6233. Fax: (718) 268-0505. ity and rates. [email protected] Visit our Web site at www.sefco-export.com

12 AFSA NEWS • SEPTEMBER 2004