PICKING AMBASSADORS I DIRE STRAITS I WINTER DREAMS $3.50 / MAY 2008 OREIGN ERVICE FJ O U R N A L S THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS U.S.-AFRICA RELATIONS Building on the First 50 Years OREIGN ERVICE FJ O U R N A L S CONTENTS May 2008 Volume 85, No. 5 F OCUS ON Africa A MIXED RECORD: 50 YEARS OF U.S.-AFRICA RELATIONS / 17 Through the first half-century of African independence, with all its disappointments and successes, U.S. engagement has been a constant. By Herman J. Cohen IMPLEMENTING AFRICOM: TREAD CAREFULLY / 25 The Africa Command represents a reorientation of American bureaucratic responsibilities that will probably work well for us, but confuse local governments. By Robert E. Gribbin Cover and inside illustrations by Clemente Botelho REFLECTING ON NAIROBI: THE AFRICA BOMBINGS AND THE AGE OF TERROR / 32 A survivor recalls the 1998 bombings of the American embassies PRESIDENT’S VIEWS / 5 in Kenya and Tanzania and ponders what we have learned. The 10-Percent Solution By Joanne Grady Huskey By John K. Naland THE AFRICA BUREAU’S INTELLECTUAL GODFATHERS / 36 SPEAKING OUT / 14 Though they represented very different perspectives, Ralph Bunche Heading Off More Clashes and Richard Nixon helped make AF a reality 50 years ago. in the Strait of Hormuz By Gregory L. Garland By Benjamin Tua THREE DAYS IN N’DJAMENA / 41 REFLECTIONS / 80 An eyewitness account of the recent civil war in Chad and “Wow — You Must Really attendant evacuation of embassy personnel. Like Winter!” By Rajiv Malik By Joan B. Odean AFRAID OF OUR SHADOW: CORRUPTION DEVOURS AFRICA’S MIDDLE CLASS / 44 LETTERS / 6 The United States needs to move more aggressively against entrenched corruption in African societies for the sake of the continent’s future. CYBERNOTES / 10 By Daniel Whitman MARKETPLACE / 13 BOOKS / 62 IN MEMORY / 66 INDEX TO ADVERTISERS / 78 MAY 2008/FOREIGN SERVICE JOURNAL 3 OREIGN ERVICE CONTENTS FJ O U R N A L S AFSA NEWS Editor STEVEN ALAN HONLEY Senior Editor AFSA HQ RENOVATION PROJECT UPDATE / 49 SUSAN B. MAITRA Associate Editor ENTRY-LEVEL CONFERENCE REPORT FROM CAIRO / 49 SHAWN DORMAN INVOLUNTARY SMA GETS A BOOST / 49 Ad & Cirulation Manager ED MILTENBERGER BRIEFS: PIT BUYBACK / 50 Business Manager ALICIA J. CAMPI VP STATE: OVERSEAS PAY DISPARITY — DEBUNKING THE MYTHS / 51 Art Director CARYN SUKO SMITH VP USAID: IT’S TIME FOR A TRADE-IN / 52 Advertising Intern TIGER TORELLE REINVENTING RESOURCES AT THE OVERSEAS BRIEFING CENTER / 54 FLO: 30 YEARS OF SUPPORT FOR FS FAMILY MEMBERS / 55 EDITORIAL BOARD TED WILKINSON TRAGEN AWARD FOR FAMILY MEMBER ADVOCATE LESLIE DORMAN / 56 Chairman JOSEPH BRUNS FAMILY MEMBER MATTERS: THANKS, NOW HERE’S YOUR PAY CUT / 57 STEPHEN W. B UCK JULIE GIANELLONI CONNOR FIELD NOTES FROM BELGRADE / 58 JIM DEHART CLASSIFIEDS / 59 JEFF GIAUQUE GEORGE JONES LAURIE KASSMAN YVETTE N. MALCIOLN DAVID MCFARLAND AL PESSIN THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS Foreign Service Journal (ISSN 0146-3543), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published monthly with a combined July-August issue by the American Foreign Service Associa- tion (AFSA), a private, nonprofit organization. Material appearing herein represents the opin- ions of the writers and does not necessarily rep- resent the views of the Journal, the Editorial Board or AFSA. Writer queries and submissions are invited, preferably by e-mail. Journal sub- scription: AFSA members – $13 included in annual dues; others – $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Washington, D.C., and at additional mailing offices. Indexed by Public Affairs Information Services (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of adver- tisements herein does not imply the endorse- ment of the services or goods offered. TELEPHONE: (202) 338-4045 FAX: (202) 338-8244 or (202) 338-6820 E-MAIL: [email protected] WEB: www.afsa.org © American Foreign Service Association, 2008. Printed in the U.S.A. Send address changes to: AFSA Attn: Address Change 2101 E Street N.W. Washington DC 20037-2990 Printed on 50-percent recycled paper, of which 10 percent is post-consumer waste. 4 FOREIGN SERVICE JOURNAL/MAY 2008 PRESIDENT’S VIEWS The 10-Percent Solution BY JOHN K. NALAND Since its founding in 1924, The one partial success was need for, in the words of a 2006 U.S. AFSA has taken on a myriad of the insertion of language into Senate report, “the president [to] send ever-changing issues in response the Foreign Service Act of to the Senate as nominees for ambas- to the evolving global and do- 1980 setting qualifications for sadorships only those candidates who mestic environments facing the ambassadors. Thus, current are qualified for the sensitive and Foreign Service. However, at law states that they “should important post-9/11 role of U.S. ambas- least one AFSA position has possess clearly demonstrated sador.” That report, Embassies as never changed: overseas diplo- competence to perform the Command Posts in the Anti-Terror matic missions should almost always be duties of a chief of mission, including … Campaign, urged that all ambassadorial headed by career Foreign Service useful knowledge of the language … nominees possess “the qualities of expe- members. Though many non-career and understanding of the history, the rienced judgment, knowledge of intera- ambassadors have served our nation culture, the economic and political insti- gency missions and activities, and a solid well, an even greater number have tutions, and the interests of that country. grounding in the culture and politics of lacked the skills and experience needed … Contributions to political campaigns the region to which the candidate is to properly represent our nation. should not be a factor. ” Unfortunately, expected to be assigned.” The problem of unqualified non- to quote Johnny Depp’s line as pirate Those two new factors argue for career ambassadors appointed for their Captain Jack Sparrow, that language has immediate action to limit the number of political loyalty has a long history. For been treated as “guidelines rather than unqualified non-career ambassadors. example, in 1957 President Eisenhower rules.” Absent such action, some U.S. embassy sent Earl E.T. Smith, a businessman So why raise the issue now, given this may someday experience its own who spoke no Spanish, to Cuba. In track record? The answer is that two Michael D. Brown moment when hindsight, more experienced leadership recent tragic events may have strength- expert advice is ignored and top leader- was needed there (he left three weeks ened the prospects for reform. ship fails during a crisis. before Fidel Castro seized power). The First, the devastation of New Of the proposed solutions, the easi- news media has reported the “selling” of Orleans and the central Gulf Coast by est to implement would be for Congress ambassadorships at least since the Hurricane Katrina in August 2005 to lower the non-career portion of Nixon administration. That reporting showed — unambiguously and in real ambassadors from the informal histori- has criticized appointments made by time — the danger of placing an cal average of 30 percent to a statutory presidents from both political parties. unqualified political appointee in a criti- maximum of, say, 10 percent. That In response, there have been initia- cal position. While there were also fail- would allow a select number of distin- tives over the years to limit the number ings at the state and local levels, it is guished citizens — for example, retired of unqualified ambassadors. For exam- clear that International Arabian Horse lawmakers — to go out as envoys, while ple, nonpartisan groups have offered to Association officer Michael D. Brown, ending the unchecked spoils system weigh the qualifications of nominees, director of the Federal Emergency under which scores of low-level political and lawmakers have submitted bills to Management Agency, was the wrong activists are tapped for critical national limit the number of non-career ambas- person in the wrong place at the wrong security positions for which they are sadors. But, those reform efforts failed. time, with catastrophic results. unqualified. Second, the “long war” against ter- Now is the perfect time to imple- John K. Naland is the president of the rorism that was launched after the Sept. ment a bipartisan solution to this long- American Foreign Service Association. 11, 2001, attacks has highlighted the standing problem. I MAY 2008/FOREIGN SERVICE JOURNAL 5 LETTERS Transform Our Budget the job done. Time for the Afghan Army John Naland’s February President Getting us the resources we need to Step Up View’s column comparing today’s bud- — now that would be a remarkable On Jan. 14, there appeared an get situation with that of the 1990s hit transformation! opinion piece in the New York Times my desk at a fitting time. That same Christian Yarnell titled “Afghans, Report for Duty,” by day, my colleagues and I learned that, Economic Officer former U.S. ambassador to Afghani- as of April 1, our post could no longer Embassy Kyiv stan, Ronald Neumann. Amb. Neu- afford to continue our weekly lan- mann suggests instituting a military guage lessons (with a few exceptions, Remember draft in Afghanistan as a viable solu- such as for those trying to get off lan- Diplomatic History tion to the worsening security in the guage probation). Just a few days ear- Congratulations on the new For- country. He also criticizes the role of lier, we were also forced to signifi- eign Service Heritage feature and its the Afghan National Police in dealing cantly slash our in-country travel initial article about Loy Henderson in with that situation.