FS FICTION PROGRESS IN NORTHERN IRELAND TWO HOSTAGE CRISES

AFSA AWARD WINNERS INSIDE

$3.50 / SEPTEMBER 2007 OREIGN ERVICE FJ O U R N A L S THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS

STRIKING A BALANCE Human Rights Promotion in the Post-9/11 Era

CONTENTS September 2007 Volume 84, No. 9

F OCUS ON H UMAN R IGHTS F EATURES

20 / REASSERTING U.S. LEADERSHIP IN HUMAN RIGHTS LESSONS FROM NORTHERN IRELAND’S The U.S. reputation for integrity, just behavior and PEACE PROCESS / 53 leadership in upholding global standards is at a low point. The recent breakthrough in the troubled region could How can it be restored? be a model for easing other sectarian conflicts. By Edmund McWilliams By Andrew Sens

26 / A CURE WORSE THAN THE DISEASE? THE BOXER SIEGE: A PRECEDENT The heart of the administration’s approach to FOR THE IRANIAN HOSTAGE CRISIS / 56 curbing terrorism is the use of torture and These two major breaches of diplomatic facilities were coercion to force information from suspects. separated by eight decades and thousands of miles. By Kenneth Roth But they have much in common. By Moorhead Kennedy 33 / CRAFTING A NEW COUNTERINSURGENCY DOCTRINE The Army and Marine Corps have raised the banner of human rights in their new counterinsurgency doctrine. C OLUMNS D EPARTMENTS Its principles could be the basis for an PRESIDENT’S VIEWS / 5 LETTERS / 7 effective campaign against terrorism. Team AFSA CYBERNOTES / 10 By Sarah Sewall By John K. Naland MARKETPLACE / 12 41 / THE FOLLY OF A SHORT-TERM APPROACH SPEAKING OUT / 14 FASTRAX / 13 A British diplomat describes the challenges of promoting Six Simple Proposals AFSA NEWS / 63 human rights when a dictatorship is also a key ally. to Improve Efficiency By Craig Murray and Morale BOOKS / 79 By Hollis Summers IN MEMORY / 80 INDEX TO FS FICTION FS KNOW-HOW / 17 ADVERTISERS / 90 48 / LUCKY Retirement Planning 101 Against the bleak, frozen landscape of a Russian winter, By John K. Naland an American woman finds an unexpected path REFLECTIONS / 92 through her grief. Politically Incorrect in Burma By Joan Broyles Odean By Don North

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 J O U R N A L F S monthly with a combined July/August issue by the American Foreign Service Association, a private, non-profit Editorial Board Editor organization. Material appearing herein represents the opinions of the writers and does not necessarily represent STEVEN ALAN HONLEY TED WILKINSON, the views of the Journal, the Editorial Board or AFSA. Writer queries and submissions are invited, preferably by Senior Editor CHAIRMAN e-mail. Journal subscription: AFSA Members - $13 included in annual dues; others - $40. For foreign surface mail, SUSAN B. MAITRA add $18 per year; foreign airmail, $36 per year. Periodical postage paid at Washington, D.C., and at additional mail- Associate Editor KENT C. BROKENSHIRE SHAWN DORMAN ing offices. Postmaster: Send address changes to Foreign Service Journal, 2101 E Street N.W., Washington, D.C. STEPHEN W. B UCK Ad & Circulation Manager 20037-2990. Indexed by Public Affairs Information Service (PAIS). The Journal is not responsible for unsolicited ED MILTENBERGER ANTHONY S. CHAN manuscripts, photos or illustrations. Advertising inquiries are invited. The appearance of advertisements herein Business Manager JOSH GLAZEROFF does not imply the endorsement of the services or goods offered. FAX: (202) 338-8244 or (202) 338-6820. ANDREW KIDD WILLIAM W. J ORDAN E-MAIL: [email protected]. WEB: www.afsa.org. TELEPHONE: (202) 338-4045. © American Foreign Service Art Director LAURIE KASSMAN CARYN SUKO SMITH Association, 2007. Printed in the U.S.A. Send address changes to AFSA Membership, 2101 E Street N.W., KAY WEBB MAYFIELD Editorial Intern Washington, D.C. 20037-2990. Printed on 50-percent recycled paper, of which 10 percent is post-consumer waste. JOHN K. NALAND ANNA WONG GLEYSTEEN Advertising Intern JOYCE NAMDE ANGELINE VUONG CHRISTOPHER L. TEAL Cover and inside illustrations by Ian Dodds

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 3

PRESIDENT’S VIEWS Team AFSA BY JOHN K. NALAND

Greetings from your new with agency management supported, more respected and more AFSA president. I join with the over many conditions of satisfying place in which to spend a 24 other members of the new service. Speaking as a pro- career. AFSA Governing Board in fessional association with an As we move forward, I promise to pledging to tenaciously defend 83-year track record as the maintain an active pace of outbound and advance the interests of the voice of the Foreign Service, communications, not only through this Foreign Service over the next AFSA can often influence monthly column, but also via frequent two years. I thank my pre- even non-negotiable agency e-mail updates sent via our free listserv, decessor, Ambassador J. Anthony policies. AFSA frequently testifies on AFSAnet. If you are not among the Holmes, and the members of his Capitol Hill, has a full-time director of nearly 10,000 subscribers to that ser- Governing Board for their strong, legislative affairs, and operates a vice, you may sign up at www.afsa.org/ principled advocacy of AFSA mem- political action committee, AFSA- forms/maillist.cfm. bers’ interests over the past two years. PAC. We have an active communi- If you are a subscriber, you will This is a critical time for our cations outreach program that gets have seen my initial updates laying profession. Conditions of service have AFSA’s views cited by major media out the new AFSA Governing Board’s deteriorated. More posts are danger- outlets and arranges speaking events starting agenda, which includes the ous and unhealthy. The number of around the country to explain the following objectives: secure Overseas unaccompanied positions has soared. importance of diplomacy to tens of Comparability Pay; obtain more Longstanding physical security policies thousands of citizens each year. resources for diplomacy; improve have been abandoned in order to staff Our greatest strength, however, is overseas security; influence Foreign war zones. Many posts and offices are you. AFSA’s active-duty members are Service reform initiatives; preserve understaffed and overworked. The our eyes and ears around the world, and strengthen USAID; defend the Service has become less family- alerting us to the good, the bad and the Foreign Service against outside friendly. The lack of Overseas Com- ugly in agency practices. Our retiree critics; expand professional training; parability Pay is an ever-growing finan- members play a key role in lobbying improve overseas living conditions; in- cial disincentive to overseas service. Congress for resources for diplomacy crease WAE opportunities; defend Gains made earlier this decade in and educating our fellow Americans and expand retiree benefits; expand strengthening diplomatic readiness about the role of the Foreign Service. diplomatic privileges for specialists; have been overwhelmed as staffing And all members, through their dues, improve administrative accommoda- demands in Iraq have far outpaced support AFSA’s talented professional tions for members of household; appropriations for personnel. There is staff, who work hard each day to update contact reporting and security a growing deficit between the missions advance your interests. clearance suspension procedures; and assigned to the Foreign Service and This, then, is our Team AFSA: assure fair and equitable standards for the resources available to carry out Governing Board, professional staff, assignments. those missions. and rank-and-file members. Working I also welcome your comments, AFSA has many tools with which to together over the next two years, we suggestions and — as may be appro- confront these challenges. As a union, can help realize AFSA’s mission of priate — complaints. You may contact AFSA has the legal right to negotiate making the Foreign Service a more me by e-mail at [email protected]; by effective agent of United States mail at 2101 E Street, NW, Washington John K. Naland is the president of the international leadership — while DC 20037; by phone at (202) 338- American Foreign Service Association. simultaneously making it a better- 4045; or by fax at (202) 338-6820.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 5

LETTERS

The Case for many of us are probably more than Rereading Roman History Mid-Level Entry happy to serve in consular and other I would normally let Ambassador In my brief (untenured) tenure as sections outside our cone for extend- Thomas Boyatt’s June letter, respond- an FSO, I have been impressed with ed periods of time. But I suspect that ing to Foreign Service Journal Editor AFSA’s forthright advocacy on issues the State Department would be Steve Honley’s March review of the pertaining to the independence and better served by introducing a system book Imperium: A Novel of Ancient well-being of the Foreign Service. that permitted experienced profes- Rome, go by without comment. How- However, Ambassador J. Anthony sionals to join the Foreign Service at ever, I found it not just devoid of sub- Holmes’ reiteration of AFSA’s stiff “mid-level” positions. stantive merit but gratuitously offen- opposition to a mid-level entry pro- First, such a shift in policy would sive, as well. gram (President’s Views, April) strikes provide the department with a wider Where to begin? We all know that me as short-sighted and detrimental pool from which to select mid-level “European” has been a cuss word to sound recruiting. officers for important management ever since Donald Rumsfeld told us I will not deny that my discomfort and operational positions. Second, it so, and that “literati” is even more with this position stems partly from would significantly increase the de- laughable than “intellectuals.” But do my own experience. While I under- partment’s ability to attract recruits we need European literati to bash a stood when I entered the Service that with 10 or more years of relevant ex- president whose support among plain I would have to pay my dues as a perience. Many talented majors and folk back home is plummeting daily? “junior” officer, it is, of course, some- captains retiring from the Army, for With respect to ancient history, I what galling to me that my decade of example, are reluctant to consider a do not understand why Romans work experience — including six career in the Foreign Service whose lands had suffered devastation years in the reconstruction field with because of the requirement to start a few generations earlier would for the United Nations — and my rather as a junior officer. Certainly a that reason be inured to attacks by expensive master’s degree are all but depressingly large number of the Mediterranean pirates. Were Ameri- meaningless as I begin my new career more talented classmates from my cans less moved by 9/11, or should as a U.S. diplomat. master’s program were unwilling to they have been, because their great- Needless to say, I am not alone in consider the Foreign Service because grandfathers had experienced Pearl harboring a sense of frustration about of this requirement. Harbor? spending four years or so as a JO (or I applaud AFSA’s longstanding Such highly dubious and strained “entry-level officer,” as the career efforts to maintain merit-based re- propositions make one suspect that development officer team prefers). cruitment processes and to stand the multiple horns currently goring For example, the average FSO in my guard against any politicization of the Bush’s ox might also have pierced A-100 class has 10 years of work Foreign Service. However, I strongly those standing too close by. Leaving experience. Many of my A-100 peers believe that opposition to a properly history and erudition aside, Boyatt’s have impressive experiences under conceived mid-level entry program is imperious swipe at the New York their belts in the military and inter- counterproductive and undermines Times for having published a poten- national organizations, as well as in the department’s ability to attract tially controversial op-ed piece is silly private-sector settings, where they experienced professionals, not least enough. But he unwittingly pays Mr. honed many of the skills necessary for those with qualifications in the fields Honley a richly deserved compliment diplomacy. central to “transformational diplo- by lumping the Journal in with the I believe that many of the “older” macy.” Times with regard to journalistic entrants to the Foreign Service have Ludovic Hood quality and editorial policy — by no objection to spending a couple of FSO which I mean management, not view- years or so on “probation.” Similarly, Arlington, Va. point.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 7 L ETTERS

As for the latter, Honley’s words Supplement), I would add a new speak for themselves: “Perhaps the online resource, www.finfo.com. parallel Harris proposes here is a This Web site includes an inter- fallacy ... only time will tell whether active college simulator that not only the United States is repeating that provides fast, up-to-date information fatal error.” Would that Boyatt had on tuition, room and board, and other read them. expenses for colleges and universities Alan D. Berlind in the United States, but also offers Senior FSO, retired customized reports with graphics that Bordeaux, France show at a glance the comparative financial advantages or disadvantages Getting the Point on Iran of different schools under considera- The June focus article by Ambas- tion. sador John W. Limbert, “The U.S. Users can select multiple schools and Iran: Mything the Point,” sends a for the simulation and enter infor- breath of fresh air and common sense mation on what they are able to pay over “a quagmire of myths and fester- through savings and monthly contri- ing grievances, real and imagined.” It butions. The simulator then retrieves is a valuable contribution to coverage data to provide an instantaneous of this important issue, made by a personalized report, including projec- distinguished diplomat who has a tions on the amount of funding that unique and deep understanding of will be needed over two or four years what drives both sides, and practical, from scholarships, loans and other hands-on experience with the sources, to cover costs for each problem. college or university. It also factors The Limbert article should be in variables such as residency or non- read and discussed by all decision- residency, local cost of living and makers involved in the U.S.-Iran future tuition increases due to issue, as well as those with responsi- inflation. And it offers easy access to bility for wider Middle East issues. I lenders on a competitive basis. suggest that AFSA distribute it to Anyone doing financial planning every member of Congress as well as for college may want to have a look at executive branch policymakers, and this new site. It also has a Foreign that AFSA approach its contacts to Service connection: one of its found- have the piece read into the Congres- ers, currently its chief technical sional Record. (Don’t think it will not officer, is Hal Mecke, who accompan- be read: staff personnel will recognize ied his father, Frederick Mecke, and its value and flag it for a summary me on our State/USIA tandem tours report and possible discussion with in the former Soviet Union and in their principals.) Belgium, where he attended St. John’s Amb. Limbert’s article is must- International School. reading for everyone concerned Carol Doerflein about this issue. FSO, retired Francis Xavier Cunningham Montpelier, Vt. FSO, retired Arlington, Va. Beware of Health Insurance Clocks Researching College Options Everyone under the Federal To Francesca Kelly’s excellent, Employee Health Benefits program comprehensive suggestions on how to needs to be aware that the clock for research college options (June Schools submitting a claim starts when

8 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 L ETTERS

treatment is performed, not when you receive the bill. My daughter was treated in Vienna, but the bill did not arrive until two years (and two posts) later. I immediately submitted an insurance claim, which was denied for coming in after the deadline. An appeal to the insurance company was denied, and an appeal to the Office of Personnel Manage- ment was denied. Basically, neither of them cared that not receiving the bill for two years was beyond my control, even with a letter from Embassy Vienna verifying that the billing took that long. Everyone, especially those posted in countries with socialized medicine, needs to keep this in mind. Roger W. Johnson IMO Embassy Manila

CORRECTIONS

We misidentified North Korea’s foreign minister in “Turnabout Is Fair Play,” by Leon Sigal (July- August). In the third paragraph on p. 30, the passage should read, “… promised a meeting between Secretary of State Condoleezza Rice and North Korean Foreign Minister Park Ui-chun.” Kim Gye- gwan, a DPRK diplomat, is vice foreign minister. Due to another editing error in the same issue, the leader cited in the opening paragraph of Bob Guldin’s article, “Russian Nukes: Situation Terrible, But Much Improved” (p. 36), should have been Boris Yeltsin, not Vladmir Putin. We regret the errors.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 9 CYBERNOTES

“Missed Story in Iraq”: Foreign Relations Subcommittee on We Have It! he fact of the matter is International Development and The Columbia Journalism Review’s this Foreign Service of Foreign Assistance, Economic Affairs July-August editorial (www.cjr.org) T and International Environmental ours needs more dissenters, notes that “Every March since the war Protection that sponsored the hearing, in Iraq began, the Foreign Service not fewer. And it needs to charged that the process so far had Journal … has examined the state of encourage them, not been carried out in a secretive man- diplomacy and nationbuilding in Iraq. discourage them. If there ner, excluding valuable input from the Reading those issues, one thing is were more of that, maybe field. As a result, USAID is being apparent: the press has largely ignored we wouldn’t be in the mess decimated and the development agen- an important story about the da shortchanged in the service of we’re in right now. consequences for thousands of civilian short-term foreign policy goals. Foreign Service employees of the — Former Secretary of State Menendez made it clear that he administration’s disastrous war.” Lawrence Eagleburger, expects the administration to collabo- The CJR editorial continues: “The June 28, speaking at the rate with Congress and demonstrate maintenance of America’s largest AFSA Awards Ceremony, transparency in the process from here embassy in an active war zone is a hard on out. http://www.npr.org case to make. (Even in Vietnam Sen. Richard Lugar, R-Ind., rank- security was never so bad that it ing minority member of the Foreign prevented diplomats from doing their Relations Committee, announced that, jobs.) Diplomats in Iraq — in the relationships, and the like. in view of the importance of the issue, besieged International Zone in Bagh- “Here are two basic questions that the Republican committee staff are dad and out in the perilous Provincial reporters need to unpack: Is it possible now carrying out a field-based study, Reconstruction Teams around the to perform effective diplomacy under examining assistance funded by the country — operate under frequent such circumstances? And if not, then full range of government agencies in mortar and rocket attack, or surround- why is our government risking so more than 20 countries. They are ed by armed guards when they dare many lives this way?” paying particular attention to the new venture beyond the wire to meet with — Susan Maitra, Senior Editor coordination process to see whether wary Iraqis. In the PRTs, they are and how it is mirrored in the field. often forced to do without basic Senate Hearing Throws Acting USAID Administrator and resources, like working phones. To Spotlight on Foreign Director of Foreign Assistance Henri- date, three Foreign Service workers Assistance Reform etta Fore, the principal government have been killed. “I believe this new foreign witness, heard a good deal of blunt “The press, meanwhile, has been assistance process is seriously flawed talk at the hearing. Besides remarks more interested in the Pentagon’s and may be in serious trouble,” said from Sens. Menendez and Lugar, effort to blame the State Department Sen. Robert Menendez, D-N.J., in his three development experts testified. for the bungled nationbuilding effort opening statement at a June 12 Brookings Institute Fellow Lael — that somehow the lack of civil hearing to assess the Bush admini- Brainard cited the administration’s engineers, electricity-grid experts, and stration’s 18-month-old initiative to Fiscal Year 2008 budget request to other specialists is due to State’s failure reform the U.S. foreign assistance reduce the Development Assistance to, as President Bush said, ‘step up.’ process (http://foreign.senate.gov/ account by $468 million, while corres- But this is not what diplomats do. hearings/2007/hrg070612p.html). pondingly increasing the Economic They talk to people, negotiate, build Menendez, chairman of the Senate Support Funds account by $703 mil-

10 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 CYBERNOTES

lion, to underscore concerns that development programs. Picchu, in Peru; Chichén Itzá, in long-term development programs — Susan Maitra, Senior Editor Mexico; the Roman Colosseum; and were being sacrificed to short-term the Taj Mahal. The Great Wall, begun exigencies. Further, he argued, the New Seven Wonders in about the 3rd century B.C., is the reform has so far left the tangled The list of the Seven Wonders of oldest of the wonders (the founding confusion of foreign assistance legis- the Ancient World (the Great Pyramid date for Petra is unclear). The newest lation, objectives and agencies largely of Giza, the Hanging Gardens of is the Christ the Redeemer statue, untouched. Babylon, the Temple of Artemis at erected in 1931. Another witness, Steven Radelet of Ephesus, the Statue of Zeus at Olym- The New Seven Wonders project the Center for Global Development, pia, the Mausoleum of Maussollos at was launched by a private foundation pointed out that the new director of Halicarnassus, the Colossus of Rhodes in 1999. Any monument in an “accep- foreign assistance manages barely half and the Lighthouse of Alexandria) has table” state of preservation and built of the assistance budget (55 percent), been around for more than two mil- before 2000 was eligible for consider- with DOD controlling 19 percent and lennia. ation. By 2005, 177 had been nomina- other agencies the remaining 26 On 7/7/07, appropriately enough, ted. After a panel of experts narrowed percent. Radelet argued the admini- a new list of seven wonders was an- the list to 20 sites, voting was opened stration has failed to take advantage of nounced. The new wonders were to the general public on the Internet. the opportunities to tackle the broader chosen in a thoroughly modern fash- More than 100 million votes were cast, challenges of restructuring and ion: Internet voting and cell-phone but the voting process has been strengthening foreign assistance. text messaging. In no particular order, criticized because it was possible to A number of proposals to get the the new wonders are: The Great Wall vote more than once. reform process back on track were of China; the ancient city of Petra, in For more information visit http:// fielded, including establishment of a Jordan; the Christ the Redeemer www.new7wonders.com. (Nom- Cabinet-level position to head U.S. statue in Rio de Janeiro, Brazil; Machu inations are now being accepted for the New Seven Wonders of Nature.) — Anna Wong Gleysteen, 50 Years Ago... Editorial Intern [The FSJ] should give free expression to the hopes and On Again, Off Again: fears, the aspirations and the constructive criticism, of China and the Internet the entire Foreign Service in order that this body of While it is always a good idea to be careful when sending an e-mail or professional specialists in foreign affairs may build a better Service, posting on the Internet, Americans do united behind the foreign policies of the United States. … This does not have to worry that their words may not mean that the Journal should become a forum of opposition. … get them sentenced to a labor camp. However, there is no organ of the Foreign Service at the present In the PRC, this is a very real concern. In April, the wife of a Chinese time other than the Journal which can ventilate honestly-felt blogger made headlines when she differences of opinion on matters of professional interest. sued Yahoo, alleging that the company abetted the torture of pro-democracy — Editorial by Robert McClintock, chairman of the Editorial Board, FSJ, writers by releasing their private data September 1957. to the Chinese government. The blogger, Wang Xiaoning, was sen-

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 11 C YBERNOTES

tenced in 2003 to 10 years in a labor countryside that number drops to less camp for having “incited subversion than 10 percent. Experts estimate with online treatises” critical of the that for at least 30 percent of Internet government. The lawsuit, filed in the users their main access point is a U.S., claims that Yahoo turned over wangba — literally “Web bar” — data on as many as 60 other people. which usually charges about 5 Yahoo says it condemns the sup- renminbi, or less than 75 cents, for an pression of free speech, but must hour’s worth of high-speed Internet comply with local laws. The company access. In 2000 there were only 16 notes that as governments are not computers per 1,000 people in China, required to say why they want certain compared to nearly 600 in the U.S. information, it has no way of knowing Nearly 60 percent of Internet users how the responses will be used. there are men, and 35 percent of Although the PRC deals swiftly users are 18 to 24 years old. and harshly with people it views as Known officially as the “Golden disrupting what it calls the “healthy Shield Project,” China’s Internet and orderly” online world, overall security project is often referred to in censorship of the Web in China is the West as “The Great Firewall of uneven. The strength of censorship China.” It is relatively uncoordinated seems to wax and wane as the govern- (sites may be accessible in one city but ment struggles to balance economic blocked in another, for example), and interests and political control. This many government regulations about was illustrated in May when it with- the Web are routinely ignored by drew a measure requiring all bloggers Internet users and not enforced by to register with their real names. (It security officials. According to a 2003 was made optional after Internet Harvard study, the list of blocked Web companies pointed out the logistical sites is not static, but at any given time nightmare of cross-checking people’s as many as 50,000 sites may be in- names with the Public Security accessible. Many different methods Bureau. According to the official are employed, especially IP blocking Xinhua news service, China has more (denying access to the exact string of than 20 million bloggers.) numbers that identifies a computer or PRC officials are well aware of the server on the Internet). economic potential of the Web, which E-mails may also be censored. has helped spark healthy domestic Volunteers patrol chat rooms and online gaming and software indus- message boards, deleting “objection- tries, among others. In 2000, the able” text and reporting users. People volume of e-commerce within China are encouraged to report gaps they was already estimated at $9.3 billion, find in the firewall. and information and communication In addition, Chinese tend to prac- technology is the fastest-growing tice a form of self-censorship, refrain- sector in its economy. ing from airing controversial views or There are approximately 137 mil- visiting Web sites on sensitive lion Internet users in China out of a subjects. Surveys show that relatively population of 1.3 billion, or about 10.5 few users try to access proxy servers percent. The Internet penetration (which bounce the request for a rate varies greatly by region, however: blocked site though multiple servers in large cities 25 percent or more of in other countries), and the most- residents may be online, while in the visited sites are nearly all gaming sites.

12 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 C YBERNOTES

Site of the Month: www.fedstats.gov Want to know the average price of electricity in the U.S.? How many metric tons of carbon dioxide the U.S. released in 2005? Or maybe you’re curious about the number of birds that have been banded in North America, or the daily snow depth in Wyoming. The answers to all these questions — and many, many more — can be found on FedStats, a Web site that helps people access the full range of statistical data compiled by the federal government. More than 100 agencies are linked on the site, which is maintained by the federal government. Links to the relevant agencies’ Web pages are arranged by program and subject area as well as by topic, so visitors don’t need to know in advance which agency provides the data they are looking for. FedStats, now in its tenth year, also has a comprehensive search feature that draws on the databases of many U.S. agencies. — Anna Wong Gleysteen, Editorial Intern

Cybercafés are supposed to require access to the New York Times and a photo ID for computer use and Washington Post. monitor users in real time to shut Both Google and Yahoo have been down computers being used to view criticized in the U.S. for profiting from inappropriate sites. After demon- censorship that includes restrictions strations or other disturbances the on freedom of speech and press; police will often raid local establish- Reporters Without Borders, which ments. Internet service providers are calls China the “world’s biggest prison similarly required to keep records of for cyber-dissidents,” argues that if who is online when, and where they companies stopped aiding the PRC’s visited. censorship efforts, the government Unlike many other countries that would be forced to change. limit Web access, censorship of the President Hu Jintao recently Internet in the PRC is mostly limited declared that the modernization of to political subjects. Searching the China’s political structure must not Chinese versions of Google or Yahoo, jeopardize the one-party system. The for example, does not bring up government clearly views Internet anything about the 1989 Tiananmen censorship as critical to ensuring its Square protests, the Falun Gong or continued reign. But given the in- other subjects the PRC has deemed herent openness of the Web, this may harmful to its “harmonious society.” be difficult to maintain in the long run. The PRC also tries to limit access Useful sources on Internet cen- to foreign news and information. The sorship include the OpenNet Initia- English version of Wikipedia was tive (http://opennet.net), Amnesty blocked for a year, and the Chinese- International’s campaign (http://Irre language Wikipedia is still banned. pressible.info) and the Electronic The BBC Web site has been inac- Frontier Foundation’s reports (http: cessible for several years, and during //www.eff.org/). times of crisis the government has — Anna Wong Gleysteen, been known to temporarily block Editorial Intern

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 13 SPEAKING OUT Six Simple Proposals to Improve Efficiency and Morale

BY HOLLIS SUMMERS

he American Foreign Service the Foreign Service similar treatment Association’s leaders have AFSA is capable of in the matter of permanent hiring. T always been good at discussing insisting on all these Both groups are treated the same in big-picture problems. I’m confident some ways: this year, for example, both the new Governing Board will con- changes at the same have been required to do a mandatory tinue to press for important AFSA time that it pursues stint of passport adjudication. How- goals — overseas comparability pay ever, Presidential Management Fel- occupying the top of the list — that broader issues. lows (https://www.pmf.opm.gov/Pro require congressional action, and that gramPolicy.aspx) are fully vested in just its leadership will ably perform the two years, and can be hired at that essential tasks of meeting with senior point at grades up to the GS-12 level. officials at the State Department and items be acted on or deferred. The department also tends to give the other foreign affairs agencies, Currently, job seekers can know what them real responsibility early, in part to testifying before Congress and cor- positions will be considered only if entice them to stay at State. recting the press when it maligns the they somehow find out what the In contrast, those in the Foreign Foreign Service. agendas contain, a service extremely Service, who often have much better But AFSA should also pursue busy career development officers qualifications than PMFs, often are several internal changes that State cannot provide for all their clients. not tenured at their first review, which management could effect in a few Equally importantly, giving bidders takes place over three years after they weeks or months, significantly improv- access to panel agendas and to lists of enter. Decisions on those deferred at ing the workplace for the association’s panel decisions would let them know first review are not made until after an members. Each of the six proposals when jobs they seek have been additional year, and sometimes a third below would improve efficiency and assigned. Currently, only public diplo- review is required six months after the morale by substituting common-sense macy cone personnel learn what jobs second. As I observed during my measures for existing cumbersome have already been assigned: PD offi- three years as a career counselor, the and self-flagellating procedures. cers rightly consider this vital infor- process of selecting which candidates AFSA is capable of both insisting on mation. When panel agendas shifted are tenured on first review is hap- all these changes at the same time it to an electronic format, many in HR hazard and unfair. Though eventually pursues broader issues like overseas argued unsuccessfully that all bidders almost everyone gets tenure, super- comparability pay. should have been given access. The visors, perhaps fearful of making mis- result of withholding this important takes or of taking responsibility, often Give All Personnel Access to information has been to allow bur- write evaluations that result in fully Assignment Information eaus, which do have access to those qualified candidates having to under- Right now, only the bureaus and agendas, to delay paneling positions go a second review. Human Resources personnel have until only their candidates remain and The flaws of the few who don’t get access to the assignment panel agen- to manipulate panels in other ways to tenure usually become obvious in the das on State’s intranet. Those most attain bureau goals, to the detriment orientation course, and certainly affected, the bidders, are in the dark. of individual bidders. should be apparent at the end of their Making agendas available to all FS first two rating periods. If it takes just personnel would enable bidders to Speed Up Tenuring Decisions two years to identify which PMFs know when panels will consider jobs The department should accord should be vested, management should they seek and let them request panel those entering the Civil Service and be able to tenure almost all FS

14 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 S PEAKING O UT employees after over three years, at its Web site that would enable people that designation, often with the help their first review. HR should change to find others interested in job- of AFSA’s labor-management counsel- its policy and automatically tenure all sharing. And it should publicize which ors, who are already helping many on first review except the very few overseas missions provide the best members. whose evaluations demonstrate real services to members of household. AFSA’s legal staff notes that while performance problems. Supervisors HR has sometimes claimed there is a should be required to document such Ensure Low-Ranking legislative mandate that 5 percent of performance problems before the first Decisions Have a evaluated employees be low-ranked, tenure review, removing the tempta- Factual Basis there actually is no such require- tion for them to take the easy path of AFSA has always supported the ment. Another reason given for letting someone else counsel and deal low-ranking and selection-out of management’s continuing insistence with those very few whose perfor- people who are unable to do their jobs on that quota is that congressional mance will not eventually result in adequately, on the basis of documen- staff has insisted on it. But even if tenure. ted employee evaluations. Those that were ever true, with a different individuals who are low-ranked twice party in control of Congress and Implement Family-Friendly in five years by different supervisors numerous staff changes, it is no Policies for All Bureaus are then referred to the Performance longer the case. and Posts Standards Board. HR defends the current policy by Many recognize that the worka- At the same time, in its engage- pointing to the fact that few employ- holic culture of the State Department ment with management AFSA should ees are low-ranked two years in a row; needs to change, and management, push for immediate termination of the indeed, some are actually promoted which now is instituting welcome requirement that at least 5 percent of the next year. Nevertheless, policies measures to make unaccompanied each competition group must be low- that arbitrarily inflict unjustifiable tours more palatable, provides many ranked. All promotion board mem- judgments and burdens on employees programs that enable workers to pay bers I’ve talked to agree that it’s should be eliminated. attention to their families and person- impossible to find 5 percent who truly Should management stand fast on al lives as well as to their work require- deserve that dubious distinction. perpetuating the quota, AFSA should ments. The State Department has in Most boards find that only about 2 at least insist that the low-ranked be place excellent policies that allow percent of competition groups clearly notified when promotions are an- employees to initiate flexible working qualify for referral to the Performance nounced, rather than just before the schedules, to have two employees Standards Board, so they then invent holidays. share a single job and, when feasible, reasons to low-rank the remaining 3 to telecommute. Some bureaus have percent. Make Security Enforcement successfully instituted these policies; The department suffers because Positive Instead of Punitive others adhere to them only occasion- boards have to complete the very dif- All who work in a classified ally. AFSA should urge management ficult task of low-ranking people environment know that only the to ensure that in all bureaus these whose performance has been good, exceptionally lucky avoid committing family-friendly programs are actually and perform the administrative tasks security infractions, no matter how available to anyone who wants to use necessary to refer some of them to the faithfully they follow good security them. board, which has in the past refused to procedures. Just as 18th-century AFSA should also undertake the separate many of the individuals England didn’t stop crime by making difficult job of figuring out which brought before it. (In 2005, the most sheep-stealing and about 200 other bureaus actually encourage employ- recent year for which AFSA has infractions capital offenses, the ees to use these benefits and annually statistics, 189 people were low-rank- institution of draconian penalties for publicize their efforts in the Foreign ed, but only 14 were designated for security violations hasn’t stopped Service Journal and via the AFSAnet separation by the PSB.) them, and won’t. It has, however, listserv. Specifically, it should let Adding insult to injury, conscien- made it difficult for some good members know how many job shares tious employees with good evaluations officers to gain promotion, and the each bureau offers and list how many receive the surprising news that burdens of these policies fall dispro- FS personnel have had flexible sched- they’ve been low-ranked just before portionately on those cones that deal ules approved in each bureau and Christmas. They then have to under- most with classified material. post. It should also provide a page on take the laborious task of contesting In overseas missions, of course,

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 15 S PEAKING O UT

only State employees play the security availability to meet service needs no AFSA should support even-handed, violation game by State’s rules: the longer apply to everyone. People find fair assignment policies that eliminate Foreign Agricultural Service and it easy to get around the fair-share non-medical exemptions to the fair- other overseas agencies don’t partici- requirement that bidders who have share requirement for employees at pate. State should learn from these not served in a differential post of at all grades. But as long as the rules other agencies and adopt more least 15 percent in the eight years prior requiring service at hardship posts positive methods of dealing with to their transfer must maintain three don’t apply to many, the assignment violations that take place in alarmed fair-share bids. system fails the fairness test, and controlled-access areas, accessible Management’s recent efforts to AFSA should oppose it. after hours only to armed guards and improve the situation have this year All fair-share candidates who authorized employees. It should also included requiring unaccompanied choose to bid on Washington positions strive to implement policies that are posts to be staffed before other should be required to bid only on uniform for all agencies represented assignments are made, retroactively hard-to-fill Washington jobs. In that in each mission. changing the differential require- way, fair-share candidates who choose Specifically, State should use ments that determine who’s a fair-share to come back to Washington, includ- methods that treat lapses in these bidder, and instituting the gimmick of ing those whose medical status or areas as opportunities to strengthen linked tours (serve in Baghdad and get other circumstances preclude service security procedures and educate em- a guaranteed tour in Accra, Dhaka or at hardship posts, would be able to ployees to use better practices, instead other posts). All these measures are help the department meet its most of using violations to punish and deny desperate attempts to fix a funda- pressing needs, even though they opt promotion for offenses that by mentally flawed system. AFSA should not to go abroad or cannot serve there. definition do “not result in actual or work to establish a fairer, more Only when all those jobs have been possible compromise of the informa- comprehensive approach that extends filled should fair-share candidates and tion” (12 FAM 551.2). Withholding to all employees, including those in those precluded from service at promotion and inflicting other penal- the Senior Foreign Service. hardship posts be allowed to seek ties because of infractions that occur Because of the gigantic loophole of other Washington positions. within the confines of CAAs is cruel allowing fair-share candidates to bid This policy would have the salutary and unusual punishment and should on Washington jobs instead of serving effect of providing those who have be abandoned. in hardship posts, the fair-share sys- served in high-differential posts with a State also should make other secur- tem, despite its name, has never ful- greater choice of Washington jobs, ity requirements clearer and make uni- filled the purpose of providing ade- and of providing lots more candidates form and speedy decisions on whether quate staffing to high-differential and for hard-to-fill domestic positions. employees should maintain security hard-to-fill positions. The need to fill There are many AFSA members clearances (see “Left in Limbo: Two one-year accompanied tours at high- with specific knowledge of other First-Person Accounts of Problems differential posts has made this long- changes similar to these that could be with DS,” FSJ, September 2005; www. standing problem even more obvious. made quickly. I hope the new Gov- afsa.org/fsj/sept05/honley2.pdf). There are no statistics or other erning Board will solicit their sug- evidence indicating that this situation gestions for improvements and ener- Extend the Fair-Share will be improved by any of this year’s getically urge management to take Requirement to All improvised attempts to fix the system action on them, following the as- While most Foreign Service per- that AFSA acquiesced to, including sociation’s long tradition of working on sonnel follow bidding rules and duti- the change allowing people to remain behalf of the membership and the fully go to Baghdad, Kabul and other in Washington only five years instead department. high-differential posts, some don’t. of six (a return to the policy before New employees learn in orientation State decided USIA’s six-year limit was Hollis Summers, an FSO since 1986, is courses that service requirements a best practice and adopted it). What’s a former chairman of the Foreign come first and that they must go needed instead is a radical change in Service Journal Editorial Board. Most where the department needs them, the way HR approaches fair share. recently, he was refugee coordinator in not where they prefer to be assigned. If filling unaccompanied positions Pakistan from 2005 to 2006 and cur- That’s true for the first two tours, but abroad is HR’s greatest priority, then rently works in the Avian Influenza then the requirements for worldwide all HR policies should reflect that fact. Action Group.

16 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 FS KNOW-HOW Retirement Planning 101

BY JOHN K. NALAND

ho in their late 20s to early come close to replacing your pre- 50s, preoccupied with the No matter how many retirement income. Instead, under W demands of work, family years you serve, FSPS, the Thrift Savings Plan must and daily life, has time to plan for a be a key part of retirement planning. retirement that is years or even your FSPS annuity Contribute at least 5 percent of your decades away? The answer is that we will not come close salary and Uncle Sam will match that all had better give retirement some contribution — “free” money that no advance thought if we wish to be well- to replacing your one should pass up. positioned to enjoy life after the pre-retirement Unless you are independently Foreign Service. I know you’re busy, income. wealthy, to position yourself well for so here is a quick guide for early- and retirement you should contribute at mid-career employees who realize least 10 percent of your salary to TSP. that retirement planning is important, Those who can should contribute as but have not yet gotten started. close to the annual maximum ($15,500 in 2007) as possible and take advantage Show Me the Money The “high three” salary is calculated of “make up” contributions (up to Many Foreign Service members by adding our average basic pay $5,000 in 2007) after age 50. For have only a vague idea of what makes (determined by multiplying each example, an employee who contri- up their retirement package. That, salary by the number of days that it buted near the maximum amount for obviously, makes it impossible to do was in effect) for our three highest- the past 20 years and kept most of it in even basic planning. So here is an paid consecutive years and then the high average return stock market overview. Because this article is dividing by three. Basic pay includes “C” fund might have around $400,000 aimed at employees who are still fairly regular pay, domestic locality pay and saved today. Retiring now and with- far from retirement, it focuses on overseas virtual locality pay, but drawing the recommended 4 percent those of us who joined after 1983 and excludes allowances, differentials, of the balance per year would yield are thus in the “new” Foreign Service bonuses and overtime. This “high payments of $16,000 a year. Continu- Pension System. Employees who fall three” salary is then multiplied by 1.7 ing to work and making maximum under other systems — such as the percent for each of the first 20 years contributions for another five years “old” Foreign Service Retirement and of service plus 1 percent for each might yield a balance of $650,000 and Disability System, the law enforce- additional year. For example, an annual withdrawals of $26,000. ment plan, the Physician’s Compar- employee with 25 years of service and • Social Security: FSPS mem- ability Allowance, or those eligible to a “high three” salary of $100,000 bers pay into Social Security through- retire before 20 years of service — can would qualify for an annual annuity of out our careers and thus qualify for consult the Department of State $39,000. That amount, however, benefits beginning as early as age 62 retirement office’s Web site (www. provides no benefits to a surviving for those willing to take reduced RNet.state.gov) for information on spouse after the annuitant’s death. payments in return for a longer bene- those retirement plans. Providing maximum survivor benefits fit period. However, because most Once FSPS participants qualify for reduces the annuity by 10 percent to Foreign Service members qualify to retirement, here is what we receive: $35,100. retire before age 62, federal law af- • Pension: Under the FSPS, our • Thrift Savings Plan: As you can fords FSPS members an annuity pension is based on our “high three” see, no matter how many years you supplement that approximates the average salary and years of service. serve, your FSPS annuity will not missing Social Security payment until

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 17 FS KNOW-HOW

age 62, when it kicks in. annuity and Social Security payments. This annuity supplement is ap- Another option is to invest more of proximately $35 per month for each Experts say that many your take-home pay in TSP, the stock year of FSPS service. Thus, someone market, rental property and/or a tra- who worked 25 years would qualify for people can continue ditional Individual Retirement Ac- an annuity supplement of around count. $10,500 per year. That amount, their current lifestyles however, is subject to reduction if the Feathering Your Nest annuitant goes back to work and into retirement on As you plan your future finances, receives wage earnings in excess of there are several things to keep in around $12,000 per year. 85 percent of their mind in order to best position your- As you can see, our sample em- self for retirement: ployee (a married person retiring after pre-retirement • How you manage your TSP sav- 25 years of service with an average ings while you are still working will high-three salary of $100,000) would gross income. have a major effect on your retire- receive around $71,600 a year in ment finances. Because most current pension, TSP withdrawals and annuity employees will need to draw on their supplement. TSP savings 30, 40, or even 50 years Your numbers, of course, will from now, most experts recommend differ based on your salary history, course, your retirement income investing in funds with relatively high length of service, TSP contributions needs may be higher or lower than average rates of return (the C, S, I and rate of return, and retirement the 85-percent guideline, depending and the long-range L funds) to age. You can estimate your numbers on such things as your desired increase the chances that your TSP by following these three steps: retirement lifestyle, possible income savings will be around as long as you • Run the Annuity Benefits Cal- from a still-working spouse, and are. Conversely, keeping most money culator via the “e-Phone” application future financial commitments, such as in funds with lower average yields on the State Department intranet. children’s college expenses. (the G and F funds) may allow infla- • Run the TSP Calculator on www. Pulling all this data together, you tion to eventually outpace earnings. tsp.gov. can judge how realistic your target • While saving for retirement is • Estimate your annual annuity retirement date is by estimating how vital, doing so can be difficult de- supplement by multiplying your plan- much retirement income you will pending on your cash flow situation. ned years of service by $420 or, if you need and then running your own To increase savings, some experts plan to retire after age 61, consult the annuity, TSP and annuity supplement urge cutting back on frequent small most recent “Your Social Security numbers. If you have no idea of splurges that add up over time — for Benefits” mailed to you by the Social when you might want to retire, then example, that daily gourmet coffee. Security Administration. run your numbers based on first Other experts say to cut back on big eligibility — which, for most em- purchases, such as buying a $35,000 Reality Check ployees, is at age 50 with at least 20 car when a $25,000 model will do just How much money will you need to years of service. fine. Most experts endorse the tactic retire comfortably? Experts say that If the calculations fall short of how of “pay yourself first” by, for example, many people can continue their cur- much money you desire, then you signing up for a large TSP payroll rent lifestyles into retirement on 85 need to adjust plans. For example, deduction so those funds never enter percent of their pre-retirement gross staying in the Foreign Service even a your take-home pay for discretionary income. One reason for that reduced few additional years will substantially spending. If you receive a high hard- need is that deductions for Social increase your annuity by raising both ship differential or an inheritance, Security, TSP, Medicare, and FSPS the multiplication factor and the consider investing a chunk of it in contributions can consume 15 percent “high three” average salary. Post- retirement savings. or more of pre-retirement gross in- retirement employment is an option • Where you retire can have an come. Those deductions end at exercised by many Foreign Service impact on your net income. The IRS retirement, thereby reducing the retirees, but be sure to study the rules taxes annuity payments, TSP with- drop-in “take home” income. Of on how earnings can affect your drawals and annuity supplements, but

18 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 FS KNOW-HOW

some states do not. Thus, retiring to ment Planning Seminar as soon as certain states can increase your net you are within five years of retirement income. For a state-by-state analysis, Those who can should eligibility. see AFSA’s annual tax guide publish- • Check out the Department of ed each February in the Journal and contribute as close to State retirement office’s Web site, posted at www.afsa.org. www.RNet.state.gov, for official in- • If you have prior military or the annual maximum formation, particularly the “Retire- civilian service that is creditable for ment Planning Guide” and the exten- FSPS retirement purposes, be sure to ($15,500 in 2007) as sive “AskRNet” question-and-answer “buy it back” by making the required section. contribution to FSPS. For example, I possible and take • Maintain your AFSA member- recently paid around $5,000 to buy ship after retirement to support the back three years of early-1980s U.S. advantage of “make association’s efforts to protect Foreign Army service in order to increase my Service retirement benefits from FSPS annuity multiplier by 3 percent. up” contributions potential future cuts. That will more than repay itself if I survive even a few years into retire- (up to $5,000 in John K. Naland is a 21-year veteran of ment. Consult www.RNet.state.gov the Foreign Service who is currently for information on buy-back proce- 2007) after age 50. serving as AFSA president. The views dures, which can take six or more in this article are his alone and do not months. necessarily represent the views of the • If possible, do not plan to make U.S. Department of State or the U.S. TSP withdrawals early in retirement. government. The general advice con- Due to the power of compound of pre-retirement planning should be tained in this article may not be ap- interest, the longer money is left in to take care of your health. Obviously, propriate for all employees, so please the TSP, the more it will grow. Also, little can be done about genetics or consult other competent sources be- in most cases, anyone who retires bad luck with accidents and disease, fore making major financial decisions. before age 55 and begins to withdraw but steps such as maintaining a TSP money must pay a 10-percent healthy weight, eating well, keeping fit IRS penalty on amounts received and not smoking are keys to a longer, 1 before reaching the age of 59 /2. healthier retirement. • As long as you are enrolled in a Let’s wrap up with a short list of federal health insurance plan for the actions that you can take now to start five years prior to retirement, you planning for a happy, healthy retire- may keep that coverage after retire- ment: ment. The government will continue • Run your annuity, TSP and Send your letter to pay its portion of the premium just annuity supplement numbers to do a as it does while you are employed. reality check on the viability of your to the editor or target retirement date. “Speaking Out” Live Long and Prosper • Consider moving your TSP This article has focused on the fi- savings into funds with relatively high column to: nancial aspects of retirement because average rates of return to increase the that is what most pre-retirees consider chances that your funds will be [email protected]. to be the key to a happy retirement. around as long as you are. Note that all submissions However, surveys of current retirees • Maximize your ongoing savings show that they consider health to be for retirement. are subject to editing the most important factor in that • Stay (or get) healthy and fit, regard. After all, having all the money especially as you move through your for style, in the world can only do so much for 40s and 50s. format and length. someone who is in chronically poor • Take the Foreign Service Insti- health. Therefore, a vital component tute’s excellent four-day-long Retire-

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 19 F OCUS ON H UMAN R IGHTS

REASSERTING U.S. LEADERSHIP IN HUMAN RIGHTS Ian Dodds

THE U.S. REPUTATION FOR INTEGRITY, JUST BEHAVIOR AND LEADERSHIP IN UPHOLDING GLOBAL STANDARDS IS AT A LOW POINT. HOW CAN IT BE RESTORED?

BY EDMUND MCWILLIAMS

resident Franklin Roosevelt’s 1941 State of the Union address, popularly known as his “Four Freedoms” speech, brought a new dimension to U.S. foreign policy and to international diplomacy. In that address, President Roosevelt enunciated “four essential human freedoms” as fundamental obligations that the world’s govern- ments owed Ptheir citizens: freedom of speech and expression; freedom to worship God in each person’s own way; free- dom from want; and freedom from fear.

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These freedoms were later enshrined in the Universal and cultural spheres, focusing more narrowly on civil, Declaration of Human Rights adopted by the U.N. Gen- political and religious freedoms. The plight of the eral Assembly on Dec. 10, 1948. (An American delega- world’s poor for much of the Cold War tended to fall out- tion led by Eleanor Roosevelt played a central drafting side the “Free World’s” main agenda of containment of role.) and occasional confrontation with the Soviet-led commu- Over the following decades, the United States part- nist world. In the post–Cold War era, the United States’ nered with other governments, institutions and individu- pro-globalization policies, spurred by trade deals that als to construct a framework of international law and a undermined or ignored worker rights and environmental tradition of respect for human rights that mark the post- concerns, further impaired the rights of the world’s poor. World War II era as unique in history. Through a broad Notwithstanding the failure of the U.S. and the rest of body of treaties, conventions and accepted international the international community to fulfill the full panoply of practice the international community, for the first time, bold, unprecedented promises of human freedom en- conferred legitimacy on a code of international conduct shrined in the Universal Declaration of Human Rights, based on fundamental “human rights.” the course of human history and the place of human rights and human welfare in the international system The Human Rights Ediface after 1948 appeared forever altered. Henceforth, as Dr. For more than half a century the United States led Martin Luther King Jr. stated in the American civil rights the international community in the construction and cod- context, “the arc of history may be long, but it bends ification of that human rights edifice, though American toward justice.” leadership faltered at times. In the long “twilight strug- Today, six years since the attacks inspired by al-Qaida gle” against Soviet authoritarianism, Washington some- on the United States, and following additional attacks in times pursued policies that debased international respect London, Madrid, Bali and elsewhere, it is no longer clear for human rights. It undermined or overthrew democra- that the Universal Declaration or Roosevelt’s “four free- tically elected governments in Iran, Guatemala and doms” were any more than a poignant voicing of hope Chile, among other places. It conspired with authoritar- that briefly illuminated a new vision of human freedom. ian allies in Indonesia, Central and South America and The vicious terror tactics employed by al-Qaida and its elsewhere, whose acts against their own people blatantly supporters would soon engender a response by the U.S. violated human rights. It made war in places like and its allies that was sometimes equally vicious and sim- Vietnam, and took military action in places such as Cuba, ilarly embraced the rationalization that innocent suffer- Grenada, Panama and Nicaragua, which — even at the ing or “collateral damage” is inevitable in the pursuit of time but especially in historical hindsight — appears victory. Presaging the devaluing of human rights in U.S. indefensible. It was slow to react to extraordinary human foreign policy, as early as 2002 a senior American official rights abuses in South Africa as well as those carried out would mock the Geneva Convention, a key pillar in that by allies, including in the Middle East, from Shah human rights edifice, as “quaint.” Pahlevi’s Iran to the Palestine territories. Moreover, the U.S. largely ignored those rights iden- A Moment of Great Peril tified in the Universal Declaration in the economic, social In his 1941 State of the Union speech, President Roosevelt portrayed an America in dire peril, warning Edmund McWilliams entered the Foreign Service in 1975, Congress that “at no previous time has American secu- serving in Vientiane, Bangkok, Moscow, Kabul, Islama- rity been as seriously threatened from without as it is bad, Managua, Bishkek, Dushanbe, Jakarta and Washing- today.” Despite the impending world war that his ton, D.C. He opened the posts in Bishkek and Dushanbe, address foresaw, Roosevelt cautioned against compro- and was the first chief of mission in each. In 1998, he mises that would vitiate fundamental freedoms. He received AFSA’s Christian Herter Award for constructive advised: “Those who man our defenses and those dissent by a senior FSO. Since retiring from the Senior behind them who build our defenses must have the sta- Foreign Service in 2001, he has worked with various U.S. mina and the courage which come from unshakeable and foreign human rights NGOs as a volunteer. belief in the manner of life which we are defending.

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The mighty action that we are call- The Bush administration es the international community to ing for cannot be based on a disre- the precipice of a brave new world gard of all the things worth fighting has challenged from which the U.N. Charter was, for.” in its most essential purpose, Sixty years later another presi- fundamental tenets of meant to deliver us. dent, at another moment of great The doctrine violates Chapter 7 peril for America, would choose a the human rights edifice of the charter, which addresses distinctly different course. In the “actions with respect to threats to wake of the 9/11 attacks, with un- constructed since the peace, breaches of the peace precedented international support and acts of aggression.” While the and sympathy, with a Congress World War II. administration has sought to place more united than at any time since the pre-emptive war doctrine with- Dec. 7, 1941, and with overwhelm- in the context of Article 51 of ing support from the American people, George W. Bush Chapter 7, which allows for action in the event of “immi- possessed a nearly unprecedented opportunity to lead. nent” attack, the Bush concept of pre-emptive self- The course he set, however, has gravely undermined defense appears nowhere in that article. Nor do the decades-old alliances, invited the rebuke of internation- facts, even as erroneously presented before the war by al opinion and incurred staggering costs in terms of the administration, constitute a circumstance of “immi- blood and treasure. nent” threat as defined within Article 51. A separate The cost of U.S. policy in the “war on terror,” conflat- administration claim that it went to war on the basis of ed by the Bush administration with the war in Iraq, is Iraq’s “material breach” of U.N. resolutions ignores the reminiscent of the cost to the United States of its U.N. Charter’s clear empowerment of the Security Vietnam adventure a generation ago, which undermined Council, and not individual members, to judge whether key alliances, prompted international popular condem- a breach has taken place and how to respond to it. nation and incurred a heavy cost in lives and resources. The alarming consequences for world peace posed by But the U.S. course in Vietnam served ultimately to the doctrine of pre-emption was evidenced in the reinforce human rights as set forth in the Universal Russian government’s resort to such a defense of its 2002 Declaration as an international bar or standard against military action in Chechnya. Similarly, India shortly which state action, even action by the leader of the Free thereafter spoke of pre-emption in warnings to Paki- World, was to be measured. Despite multiple missteps stan over developments in Kashmir and the Pakistani and policy errors, the United States — mired in an nuclear weapons program. unwinable war and driven to tactics that it would later In sum, the Bush pre-emption doctrine is in funda- deeply regret — never sought the wholesale demolition mental conflict with the intent of President Roosevelt’s of the standard by which its conduct then and since has fourth freedom, the freedom from fear, which he been measured. described as meant to ensure that “no nation will be in a position to commit an act of physical aggression against The Challenge to Human Rights Standards any neighbor.” By contrast, the Bush administration has sought to set Institutionalizing detainee mistreatment. Bush aside that standard by challenging fundamental tenets of administration actions and policies, including rendition, the human rights edifice constructed since World War detention without charge, denial of habeas corpus, II. These challenges can be summarized in three spe- detention of “ghost prisoners” and the rewriting of the cific categories: Geneva Conventions to allow the severe mistreatment of The doctrine of pre-emption. The “new” doc- detainees, collectively amount to a wholesale assault on trine of pre-emptive defense is, of course, not new. It the Universal Declaration of Human Rights, and partic- was a standard policy tool of some of the 20th century’s ularly Articles 6, 7, 8, 9 and 10 (see box, p. 23). most notorious tyrants. Its employment by the princi- The administration has refused to specifically discuss pal world actor of the early 21st century, however, push- interrogation methods employed by the CIA at its deten-

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tion facilities, or to offer any other details related to that of human rights standards or betrayal of core American agency’s secret detention program. What appears clear values than this crude reference to the dispatch of “sus- is that the president and his subordinates have arrogated pects.” to themselves the power to define what constitutes tor- The dire implications for those who might be per- ture, torture-light and abusive or humiliating treatment at ceived by the United States as its enemies could not be these facilities. The infamous Bybee “torture memo” took clearer. But the implications extend beyond that ever- the position that short of causing organ failure, U.S. gov- growing group. The actions and policies toward sus- ernment agents should, in effect, use their imagination in pected enemies has lowered the bar for other govern- extracting information from detainees. (Jay Bybee, then ments to deal with opponents without regard to interna- assistant attorney general for the Justice Department tional human rights standards. The “pushback” factor is Office of Legal Counsel, was subsequently promoted to a already evident in treatment of political dissidents in permanent position on the federal bench.) many countries, as documented in the 2007 State Moreover, the 2006 Military Commissions Act, which Department Human Rights Reports. inter alia suspends habeas corpus, prohibits invocation of The failure of command responsibility. In war — Geneva Convention rights, and permits use of evidence even conflicts that can arguably be described as “just extracted under cruel, inhuman or degrading treatment, wars” — extraordinary crimes against civilians take also absolves U.S. intelligence agents and their superiors place. In such circumstances, responsible authorities for torture or abuse they have already committed or have two fundamental duties: to review policies and pro- authorized. The U.S. government has consistently cedures so as to preclude recurrences, and to hold impeded access to detainees by the U.N., the Inter- accountable perpetrators and their civilian and military national Committee of the Red Cross and, in Afghani- commanders in a transparent judicial process. stan, by the official governmental human rights body. The Bush administration’s conduct of the “war on ter- Human Rights Watch has identified nearly 40 individu- ror” and the wars in Iraq and Afghanistan has been als who have disappeared into what amounts to an replete with abuses and excesses that have shocked the American version of a gulag. international community and shamed the American peo- Further, the administration has yet to abjure and, ple. The brutality associated with operations at Abu indeed, appears to have continued to resort to extraor- dinary rendition, in many instances transferring de- tained suspects to the authority of governments the From the Universal Declaration State Department has identified as employing torture. of Human Rights (1948) Administration claims to seek prior assurances from Article 6. Everyone has the right to recognition every- those governments that they will not torture rendered where as a person before the law. suspects are specious. Such assurances are on their Article 7. All are equal before the law and are entitled face unenforceable, and in no case has Washington fol- without any discrimination to equal protection of the law. All lowed up with these governments despite evidence that are entitled to equal protection against any discrimination in they have violated their assurances. In light of this his- violation of this declaration and against any incitement to such tory, Pres. Bush’s adamant and repeated assertions that discrimination. the U.S. government does not use or endorse the use of Article 8. Everyone has the right to an effective remedy torture are simply not credible. by the competent national tribunals for acts violating the fun- In his 2003 State of the Union address, Bush said the damental rights granted him by the constitution or by law. following regarding U.S. conduct toward terrorist sus- Article 9. No one shall be subjected to arbitrary arrest, pects: “All told, more than 3,000 suspected terrorists detention or exile. have been arrested in many countries. And many others Article 10. Everyone is entitled in full equality to a fair and have met a different fate. Let’s put it this way. They are public hearing by an independent and impartial tribunal, in no longer a problem to the United States and our friends the determination of his rights and obligations and of any crim- and allies.” There is perhaps no statement by the Bush inal charge against him. administration that more flagrantly reveals its violation

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Ghraib, and at detainee holding facil- The “new” doctrine integrity and just behavior will be at a ities at Bagram Air Base outside low point, exceeding even the nadir of Kabul, at Guantanamo and else- of pre-emptive the post–Vietnam War era. where in the U.S.-run international For the new administration to reas- detention system violates the most defense is, of course, sume a position of leadership in the basic human rights. Yet to date, defense and promotion of human rights nearly all those prosecuted under not new. it will need to bring new energy and U.S. law have been low-ranking mili- commitment to that work. A broad- tary personnel. While guilty of crim- ened focus for the effort would under- inal behavior, these perpetrators were operating in an score American sincerity and rebuild our credibility. administration-created environment that either allow- As noted above, a significant component of the human ed or, in some instances, encouraged abuse. Under rights manifesto as set out in the Universal Declaration of pressure to obtain intelligence from detainees who Human Rights and as conceived in President Roosevelt’s were publicly demonized by the most senior members “Four Freedoms,” has fallen to the margins of the U.S. of the administration, these personnel committed abus- and international agenda. Rights that are identified in es that dismayed their families, friends and fellow the Universal Declaration’s Articles 22 (economic, social Americans. and cultural), 23 (fair employment), 25 (an adequate But those senior officials whose policy memoranda standard of living with access to essential services) and 26 and public statements created the environment in (education), in particular, need concerted international which mistreatment took place and who oversaw the defense and promotion. “migration” of abusive tactics — e.g., from Guantanamo By broadening the international agenda to include to Abu Ghraib — remain unprosecuted and unrepen- those rights now denied by circumstances such as tant. Then-White House Counsel Alberto Gonzalez, poverty, inadequate education and health services for who advocated the torture memo’s contents to the pres- billions of people in sub-Saharan Africa and elsewhere, ident, was made attorney general. Vice President Dick the U.S. could redeem its leadership role and reputa- Cheney, in offhand public comments, endorsed such tion over time. That would entail a commitment of tactics as “waterboarding,” in which victims endure sim- energy and material resources on behalf of those whose ulated drowning. Moreover, the U.S. refusal to join the needs are great and of long standing. It would also International Criminal Court has had symbolic and real require sufficient humility to acknowledge that some of implications for the application of international stan- those needs remain unaddressed even within the con- dards of justice to international conduct. fines of our own borders. Until the senior civilian and military officials respon- This is the challenge facing the next administration. sible for creating conditions in which abuses are But Congress also bears responsibility for broad U.S. encouraged, ignored and, in some instances, covered abandonment of its historical leadership role in the up, are themselves prosecuted, these abuses will defense and promotion of human rights. It has collab- remain open, festering wounds on the American con- orated in the administration’s policies, especially those science. Without such application of the healing balm that led to human rights abuses and the denial of legal of justice, U.S. leadership in the defense of human recourse for detainees in the post-9/11 era. rights will remain the greatest casualty of the Bush There is a record to build on, fortunately. For many administration’s assault on fundamental American and years the U.S. Congress took a leadership role in the international values. defense of human rights. Bipartisan, bicameral majori- ties endorsed restrictions on American collaboration Reasserting American Values with foreign governments and militaries with records of The burdens that a new American president will abuse, demanding accountability and reform before assume in January 2009 are extraordinary and, in some assistance went forward. In recent years, however, sense, unprecedented. He or she will assume responsi- those restrictions have been weakened or waived at the bility for leadership of a nation whose reputation for insistence of the administration, which sought to culti-

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vate ties with these abusive mili- Congress should itary assistance with State to taries as “partners in the war on ensure that assistance is granted terror.” The administration has resist administration efforts in accordance with long-term sought to evade restrictions often foreign policy goals. Congress imposed by the Senate Appro- to evade oversight of the should resist administration priations Subcommittee on State, efforts to evade oversight, and Foreign Operations and Related human rights implications act to restore the lead role of the Programs by routing aid through Department of State in assis- the Department of Defense of its foreign assistance tance oversight. rather than the Department of In the final analysis, it is for State. programs. the American people to restore This stratagem ignores the their allegiance to, and faith in, Foreign Assistance Act of 1961, those human rights values rooted which gives State primacy over how and when to pro- in the Bill of Rights and first declared in a foreign pol- vide military assistance to foreign governments. Over icy context by President Franklin Roosevelt. This the years, Congress has added conditions to the FAA would entail recalling and recognizing the wisdom in that require the State Department to consider the Roosevelt’s words at another time of great national recipient government’s record on human rights and peril: “The mighty action that we are calling for cannot democracy before providing military aid. Congress be based on a disregard of all the things worth fighting deliberately placed the responsibility for providing mil- for.”

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A CURE WORSE THAN THE DISEASE? Ian Dodds

THE HEART OF THE ADMINISTRATION’S APPROACH TO CURBING TERRORISM IS THE USE OF TORTURE AND COERCION TO FORCE INFORMATION FROM SUSPECTS.

BY KENNETH ROTH

t is by now sadly apparent that the Bush administration’s approach to fighting terrorism has been a disaster for America’s global reputation. On Sept. 11, 2001, the hearts of people far and wide went out to Americans for the senseless horror that had been visited upon them. The world seemed united in a determination to stamp out this newI and dangerous form of evil. How quickly things changed. Terrorism remains a serious threat, but the latest Pew Global Attitudes Survey shows

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that in the eyes of many people around the world, closing of these secret CIA facilities in September 2006 America has lost the moral high ground in the battle to and the transfer of 14 detainees to acknowledged and curb it. The invasion of Iraq and the bloodshed it has more accessible detention in Guantánamo, Human unleashed are part of the reason. But a major cause lies Rights Watch’s investigations show that at least 38 in the litany of abuses that have become synonymous detainees believed to have been held in CIA custody with the Bush administration’s approach to fighting ter- have not been accounted for. And since March, accord- rorism: Guantánamo, Abu Ghraib, “disappearances” in ing to the administration’s own announcements, at least secret CIA detention facilities, unlawful renditions to four new detainees have been delivered to Guantánamo governments that torture, substandard military commis- from undisclosed locations. sions, indefinite detention without trial by labeling sus- Without any external scrutiny or independent over- pects “enemy combatants.” These examples of America sight, “disappearance” victims have historically faced flouting basic international human rights and humanitar- great risk to their physical integrity. The victims of the ian law help explain why so many people around the Bush administration have been no exception. One aim of world now want nothing more to do with the administra- their isolation was to permit the deployment of the tough tion’s “war on terrorism.” interrogation techniques that the president has trumpet- The administration is not oblivious to the plummeting ed. These, we now understand, include practices such as esteem in which the United States is held. But it seems waterboarding (mock execution by drowning) that under to believe that this is a modest price to pay for making any reasonable definition amount to torture. America safer. What critics denounce as lawless, it seems Pres. Bush routinely reassured us that the United to presume, history will vindicate as necessary and effec- States does not use torture, but those pronouncements tive measures. were of limited value because the infamous Justice But what if the opposite is true? What if, despite the Department memo of August 2002 largely defined tor- fortunate lack of another terrorist attack on U.S. soil ture out of existence by declaring that it required pain as since 2001, the Bush approach is actually making things intense as “death, organ failure, or serious impairment of worse? Quite apart from questions of legality and moral- body functions.” Under that definition, even pulling out ity, what if the approach is intensifying the terrorist fingernails or chopping off ears might not be torture. In threat, making the likelihood of future attacks even the face of public outrage, the administration has repudi- greater? To evaluate this possibility, one must analyze ated this definition, but it has yet to offer any detailed the administration’s policies for fighting terrorism, the alternative. consequences of those policies, and the alternatives that Moreover, international law prohibits not only torture might have been pursued. but also “cruel, inhuman or degrading treatment.” The prohibition on all such practices is absolute, allowing no Redefining Torture exception even in time of war or public emergency. The heart of the administration’s approach to curbing However, the Bush administration concocted a theory terrorism is the attempt to extract information from sus- that permitted the use of cruel, inhuman or degrading pects through torture and other coercive interrogation. treatment so long as the victim was a foreigner held out- “High-value” suspects have been sent for interrogation to side the United States. (Hence the need for the secret secret CIA-run detention facilities where they have been offshore CIA detention facilities.) That unprecedented held in isolation, dependent entirely on their jailors. reading of the law remained official policy until Classic “disappearance” victims, they have been denied December 2005, when Senator John McCain, R-Ariz., access to lawyers, family members, even the Internation- won approval by a vote of 90 to 9 for his amendment to al Committee of the Red Cross. In many cases, the U.S. the Detainee Treatment Act repudiating it. government did not even acknowledge holding them. Since then, the Pentagon, it seems, has largely taken Although President Bush announced the temporary itself out of the coercive-interrogation business by adopt- ing a new Army Field Manual on Intelligence Interroga- Kenneth Roth is the executive director of Human Rights tion in September 2006. As far as the military is con- Watch (www.hrw.org). cerned, this manual repudiates most of the unlawful Bush

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interrogation methods, such as water- Pres. Bush routinely Congress to abolish the writ of habeas boarding, beating, hooding, causing corpus for most of these cases. physical pain, inducing hypothermia reassures us that the Still, there have been times or heat injury, or depriving the when, following coercive interroga- detainee of necessary food, water or United States does not tion, the administration has wanted medical care. This past July, however, to pursue prosecutions. However, the administration adopted new rules use torture, but those because any respectable court would for the CIA that fail to discontinue its suppress any evidence secured by practice of “disappearing” detainees. pronouncements are of coercion (known as “fruit of the poi- The rules purport to prohibit torture sonous tree”), the administration and cruel, inhuman or degrading limited value. created a brand-new criminal jus- treatment, but their purpose is to per- tice system — the military commis- mit some coercive interrogation tech- sions — the main purpose of which niques beyond those authorized by the Army Field is to admit evidence obtained coercively. Manual, the details of which remain secret. Given the The only requirements to do so are that the coercion lack of any independent oversight of the treatment of occurred before the December 2005 Detainee Treat- “disappeared” detainees, the potential for abuse remains ment Act and that a judge find the evidence so obtained high. “reliable.” As established, the military commissions allow the government to classify — and thus protect from dis- A Radical Approach to Detention closure — the sources and methods by which evidence is The resort to torture and other coercive interrogation obtained, making it difficult, if not impossible, for the has led to additional transgressions. The desire to inter- defense to challenge the reliability of evidence. rogate suspects without regard to the consequences for Moreover, they allow evidence from interrogations to be later criminal prosecution motivated the administration presented through hearsay (by a supervisor, for example, to adopt dangerous theories for detention without trial. rather than the interrogator), thus frustrating cross-exam- It has long been accepted that a combatant captured on ination as to precisely how the evidence was obtained. a battlefield can be held without charge or trial until the end of the armed conflict. But the administration A Faulty Premise expanded that concept radically. But what if the entire premise of this approach to In its view, because there is a “global war on terrorism,” fighting terrorism — this single-minded focus on forcing the entire world is a battlefield, meaning that anyone can information from a suspect under interrogation — is mis- be picked up anywhere, labeled an “enemy combatant” conceived? To begin with, it is widely understood that, to without any judicial oversight, and held without charge or stop torture, people will say whatever they think the trial until the end of the “war against terrorism,” which interrogator wants, whether true or not. A case in point may never come. At best, detainees are brought before a is Ibn al-Sheikh al-Libi’s assertion under torture that “combatant status review tribunal,” where they have no Saddam Hussein maintained pre-invasion ties with al- legal representation and military personnel review secret Qaida to provide chemical and biological warfare train- evidence to which the suspects have no access. Moreover, ing. Al-Libi later retracted the claim, but the administra- the government can overcome adverse rulings by simply tion used it to help justify invading Iraq — one of this insisting on a do-over, again and again, until it secures the nation’s worst intelligence failures ever. And we will “enemy combatant” classification it seeks. never know how many innocent people were detained This radical approach blows an enormous hole in the and, in turn, subjected to further harsh methods because most basic due-process rights. It means that fundamental interrogators were beguiled by the false sureties of coer- criminal justice principles can be dispensed with upon the cion. (Experienced interrogators say that it’s much easi- mere say-so of an administration official, with no indepen- er to distinguish truth from falsehood by using tradition- dent oversight or legal recourse. And then, to ensure that al psychological tools rather than coercion.) there is no judicial scrutiny, the administration convinced However, people under torture will occasionally blurt

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out something truthful. Does that justify dispensing with to counterterrorism makes people less likely to cooperate basic rights? Hardly. Experts on cracking secretive crim- with law-enforcement efforts? What if people, out of dis- inal conspiracies report that the interrogation room is a taste for the administration’s methods, choose to close far less important source of useful information than tips their eyes to suspicious activity rather than become com- and leads from the general public — a neighbor or plicit in dirty-war techniques? acquaintance who notices suspicious activity and reports Not everyone will react that way, but anyone who does it to the police. For example, it was not rough interroga- represents a cost to abusive counterterrorism methods — tion techniques but tips from members of the public in one we can expect to rise the more closely a community August 2006 that helped foil the plot to bomb trans- identifies with the suspect facing abuse. Because those Atlantic flights from Heathrow, that led to the arrest of who are most likely to feel that way are individuals from the July 21, 2005, London bombers, and that disclosed to the same community as the terrorist, the administration’s the CIA the location of Khalid Sheik Mohammed’s safe use of abusive techniques is arguably diminishing the house in Karachi. most important source of information there is about (Cell phones and computers seized at the time of potential future violent acts. arrest have also been treasure troves of information, helping, for example, to crack open the 1995 “Bojinka” Dealing with the “Swing Vote” plot to blow up airplanes over the Pacific and to reveal And what about the root causes of terrorism? It is the identity of alleged conspirators behind the attempted widely recognized that curbing it requires not only smart London and Glasgow bombings in June.) law enforcement but also effective efforts to address the So, what if the Bush administration’s lawless approach conditions that drive people to violence. There is much

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debate about what precisely those Defeating terrorism Even when the administration root causes are, with candidates chooses to prosecute a suspect ranging from poverty to military requires a foreign policy before a military commission rather occupation. But regardless of the than a regular court, it is losing the particulars, people are more likely to built on strict respect for battle for hearts and minds. Com- resort to violence when peaceful pelling terrorist suspects to face avenues for pursuing grievances are human rights and their their day in court should be a blocked. Autocratic governments moment of triumph for the fight are more likely to breed violence vigorous promotion. against terrorism, an opportunity to than governments that permit dis- distinguish America’s respect for the content to be addressed through rule of law from the lawlessness of open political competition. its opponents, and to parade their crimes before the court Moreover, fighting terrorism requires not only neutral- of public opinion. Instead, the administration’s insistence izing the suspects who have already joined terrorist con- on using substandard military commissions has directed spiracies but also dissuading others from joining them. public opprobrium away from the crimes at issue and That also requires maintaining the moral high ground. toward the due-process short-cuts that epitomize the Most people are law-abiding and would never resort to commissions. terrorism regardless of provocation. Others — the Osama bin Ladens of the world — are firmly committed to ter- Setting an Example rorism and need no incitement. But the fight against ter- America’s loss of the moral high ground has been par- rorism will be won or lost in the “swing vote”— the angry ticularly harmful to the effort to combat repression young men who have deeply felt grievances and are abroad. The United States has never been a fully consis- unsure how to address them. tent promoter of human rights, but it has long been the As jihadist Web sites demonstrate, terrorist re- most influential one. Yet today, that influence is seriously cruiters have long understood that abuses committed in diminished by the Bush administration’s refusal to prac- the name of counterterrorism are among the best recruit- tice what it preaches. ing devices they have. By delegitimizing the counterter- America’s denunciations still carry weight in Darfur, for rorism effort, these abuses facilitate the extremists’ essen- example, because the United States isn’t committing mas- tial task of replenishing their ranks. As the U.S. Army sive ethnic cleansing anywhere. In addition, in some Counterinsurgency Manual explains, because it is impos- countries that maintain close political, military or eco- sible to kill or detain every terrorist, the key to effective nomic ties with the United States, our diplomatic inter- counterterrorism is to diminish the enemy’s “recuperative ventions can still be powerful. But when it comes to the power.” But if the administration’s abuses drive even a traditional tools of repression — torture, “disappear- small percentage of these angry young men to violence, ances,” detention without trial — America’s voice of con- that can still add up to a lot of people. Applying former demnation has been largely silenced. A U.S. diplomat Secretary of Defense Donald Rumsfeld’s famous test, the cannot complain about such abuses while his own govern- abuse may well be generating more terrorists than it is ment practices them — at least not with a straight face. stopping and, in the process, keeping the threat alive. Indeed, to make matters worse, the United States Moreover, by treating terrorist suspects as “combatants” continues to set a powerful example for others. When rather than criminals, the administration portrays al-Qaida an ordinary government commits an abuse, the inter- and its ilk exactly as they would want to be seen: as warriors national standard remains firm. But when a govern- rather than despicable murderers. During his Guantán- ment as influential as the United States is the violator, amo hearing, Khalid Sheikh Mohammed clearly relished the abuse tends to degrade the standard itself. U.S. the combatant label, seeing it as a status symbol. By con- misconduct becomes an excuse for others to do the trast, as the Army Counterinsurgency Manual observes, same — a cheap excuse, to be sure, but one that is very “when insurgents are seen as criminals, they lose public real because it helps deflect condemnation. And as support.” repressive governments effectively lose a powerful

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adversary, the roots of tomorrow’s terrorism take hold. only because of its short-term perspective. It should be One area where, in principle, America’s voice should no surprise that when an authoritarian government in a still be strong is in the promotion of democracy. Whatever Muslim society shuts down the political opposition, one of its electoral flaws, no one would seriously deny that the the few safe havens is the mosque. Ironically, that serves United States has a thriving political system. America the interests of the secular dictator quite well. If he can could provide an important antidote to terrorism by set up a narrow political competition between himself and extending the reach of democracy. the Islamists — as, for example, Egyptian President Indeed, for a while, the Bush administration did active- Mubarak has done by refusing for years to register secular ly promote democracy — until the “wrong” people began opposition parties — he can tell the West that the choice winning elections. The success of Islamist candidates in is between himself and Islamic extremism. Those like the Egypt, Iraq and the occupied Palestinian territories led Bush administration who tend to equate democracy with the administration to abandon its principled commitment quick elections readily fall into this trap. to honoring the results at the ballot box. The pressure to However, if we understand democracy to require not democratize that it had once exerted on Hosni Mubarak only elections but also a vigorous press, diverse civil soci- of Egypt, Pervez Musharraf of Pakistan or the Saudi royal ety, broad political competition and the rule of law, the family has now all but disappeared. outlook is very different. That’s because when people face But, skeptics ask, can Muslim societies be trusted to a range of viable political options, they tend to opt for the elect moderate governments that will eschew terrorism center. For example, before the Musharraf coup Pakistan regardless of religious affiliation? The administration now enjoyed many of the attributes of a healthy democracy. seems to have answered this question in the negative, but Allegations of corruption and incompetence under

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Benazir Bhutto and Nawaz Sharif notwithstanding, mod- and their vigorous promotion. But that requires practic- erate secular parties routinely won some 90 percent of ing what we preach and eschewing the quick fix of the vote. The Islamists were a powerless fringe there. friendly autocrats for the long, difficult work of building Only after Musharraf expelled the two leading opposi- democracy. tion figures and entered into a marriage of convenience It is perhaps not surprising that in the wake of terror- with the Islamists did they enjoy a modest renaissance. ist attacks as shocking as those of 9/11, the Bush admin- With military rule causing corruption to skyrocket and istration announced that “the gloves come off,” in the the writ of the state to erode, militant Islamists are filling infamous words of its former CIA counterterrorism the vacuum by challenging and supplanting the state, director, Cofer Black. But by now it should be painfully and terrorism is flourishing. Trusting the strongman obvious that toughness does not necessarily mean effec- turns out to be a poor substitute for the patient work of tiveness. building democracy on a foundation of broad political It may seem counterintuitive, but a counterterrorism pluralism. effort that respects human rights is not a weak one, but smart and pragmatic. That is because human rights are Values Matter not an obstacle, but a reflection of widely shared, funda- What does all this mean for fashioning an effective mental values. Because values matter — from the quest counterterrorism policy? Contrary to the Bush adminis- for popular cooperation in fighting terrorism to the life- tration’s inclinations, human rights are not the problem and-death battle with the terrorist recruiter — a coun- but part of the solution. Defeating terrorism requires a terterrorism policy that flouts universal standards will foreign policy built on strict respect for human rights fail to achieve the security it seeks.

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CRAFTING A NEW COUNTERINSURGENCY DOCTRINE Ian Dodds

THE ARMY AND MARINE CORPS’ NEW COUNTER- INSURGENCY DOCTRINE COULD BE THE BASIS FOR AN EFFECTIVE CAMPAIGN AGAINST TERRORISM.

BY SARAH SEWALL

he U.S. government has articulated a concept of operations for the defeat of terrorism: help partners combat violent extremist organizations, deter support for those organizations, and erode support for extremist ideologies. But the United States has yet to develop effective tools and policies for accomplishing these goals. Counterterrorism efforts Thave not been integrated into, or used to frame, a broader and coherent national security strategy. And while President Bush acknowledges an “ideological struggle,” American efforts in that arena have often proved counterproductive.

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In its campaign against terrorism, human rights are coherence and utility from the bureaucracy’s efforts. the West’s heraldry. Respect for them distinguishes the Because the issues are complex and highly politicized, United States from extremists of almost any brand. Yet sound national counterinsurgency policy is not likely to be human rights are under siege at home and undermined developed within, or sold by, this administration. Rather, by much of America’s behavior abroad, weakening the a national bipartisan commission is needed to craft an moral and ideological basis of the struggle against violent effective national framework and garner the capabilities to extremism. support it in the decades ahead. It may surprise many, then, that the Army and Marine Corps have raised the banner of human rights in their new A New Security Paradigm: counterinsurgency doctrine. The question is whether the It’s Stability, Stupid rest of the U.S. government — in particular foreign affairs During the 1990s, the Clinton administration began to and national security professionals — will leverage the recognize that failed states and chronic instability ulti- field manual’s principles into a broader campaign against mately threatened international, and therefore American, terrorism that protects core human rights regardless of security interests. While a peer competitor remained a faith or nationality. distant possibility, global crises and headlines arose from The Army and Marine Corps doctrine offers the most state weakness, not state strength. Previously masked by strategic approach to terrorism currently available within Cold War stasis, the corrosion within the international sys- the U.S. government; it is no coincidence that the doc- tem accelerated, fueled by globalization’s inequities, trine revolves around rights of foreign civilians. Field developing technologies and social trends. Manual 3-24, as it is generally known, honestly catalogs Complex military and civilian peace operations and the costs and requirements of civilian protection and nationbuilding efforts were intended to repair the expand- nationbuilding in pursuit of stability. It demands a paral- ing holes in a fraying international fabric. But this proved lel and overarching national policy for strengthening to be challenging, expensive and endless work, without states against revolutionary challengers, a policy that will, quick gratification; and a skeptical Congress didn’t buy the in turn, lead to the development of adequate military and linkage between failed states and American security. The civilian resources to meet that challenge. public had expected the collapse of Soviet communism to But the obstacles are enormous. First, the American produce a security dividend, not a bill. So in 2000, Ameri- public has grown weary of Iraq and appears to conflate cans elected a president who derided nationbuilding, call- that war with counterinsurgency more broadly (even ing it counter to American interests. though the field manual’s subtext cautions against pre- The events of 9/11, and subsequent pursuit of al-Qaida emptive regime change). Administration officials do not in the skeletal state of Afghanistan, ought to have chas- want to admit their failings in Afghanistan and Iraq, which tened those who dismissed the costs of failed states and is the first step toward necessary change in national poli- disorder. The higher stakes are now apparent. In fact, the cy. Civil servants are understandably wary of being marriage of ideological extremism with weapons of mass pressed into the service of “more Iraqs.” And interagency destruction threatens not just nation-states, but the poli- squabbling and parochialism have drained the intellectual tics, commerce and perhaps the very cohesion of the modern interstate system. Sarah Sewall is director of the Carr Center for Human Violent extremists increasingly function not simply as Rights Policy and teaches at the Kennedy School of insurgents within states but also as revolutionaries within Government at Harvard University. During the Clinton the international system, with ambitions and targets that administration, she served as the Defense Department’s transcend national boundaries. They take root within first-ever deputy assistant secretary for peacekeeping states, threatening the political order or simply thriving in and humanitarian assistance. Before that she spent six a governance vacuum. Confronting terrorism requires years as senior foreign policy adviser to Senate Majority strengthening governments so that they can combat vio- Leader George J. Mitchell. She is the author of the intro- lent and subversive movements and restore order. This is, duction to The U.S. Army/Marine Corps Counterinsur- effectively, counterinsurgency: “Those military, paramili- gency Field Manual (University of Chicago, 2007). tary, political, economic, psychological and civic actions

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taken by a government to defeat Civil servants are In light of the U.S. military’s glori- insurgency,” as the new doctrine fication of firepower and force pro- defines it. understandably wary tection, Field Manual 3-24 may The goal would be to make states come to be seen as a watershed. The strong enough to police internal vio- of being pressed into the new doctrine flatly rejects the notion lence pursuant to their domestic that brute force succeeds and argues laws. A state stabilization strategy service of “more Iraqs.” for a more humane approach, one would help contain violent extrem- that ensures the physical security of ism locally, eliminate terrorist safe civilians and Geneva Convention havens, and disrupt the global networks that are force protections for prisoners. It dictates that soldiers and multipliers of terrorism. Thus the new counterinsurgency Marines must assume greater risk on behalf of civilians. It doctrine is, in turn, central to a broader national security commits the U.S. military to fighting pursuant to the laws strategy. of war, even when the enemy does not. Building a consensus about U.S. security strategy — The doctrine recognizes that only by rejecting the foe’s not simply its goals, but the way we will achieve them — terrorist tactics can the U.S. claim the moral high ground. is particularly vital at this political moment. The endgame It is certainly true that the avowed enemies of America in Iraq risks pushing Americans toward policy extremes, don’t care how cleanly we fight; in fact, their strategy is to just as Vietnam produced a backlash on both the left and provoke U.S. excess and fulfill Samuel Huntington’s right. But today, neither unconstrained and exclusive use prophesied “clash of civilizations.” But the center of grav- of military power abroad, nor a retreat to isolationism and ity today is the unconvinced moderate middle — whether homeland defense, is the answer to the global terrorist among the indigenous population, Muslims, allies or challenge. Neither approach can make Americans safer Americans. Courting these audiences requires sustaining while representing our values in an ideological struggle. a commitment — however imperfect in practice — to The new counterinsurgency manual offers an alternative, moral warfare. more productive approach. Here the distinction between combatant and noncom- batant is critical. Physical security is a core human right, Fighting “Right:” Field Manual 3-24 and civilian protection is a central precept of internation- A counterinsurgency effort, as the military doctrine al law. Without it, we have no claim to outrage against ter- explains, is primarily political. It requires civilian direction ror. Nor can we win a struggle against violent radicals if and participation to achieve political effects. The armed moderate Muslims perceive our actions as indistinguish- forces play a critical, but supporting, role in operations able from the terrorists’ acts. Failure to underscore this that also include economic, social, informational and polit- distinction — through its choices of wars and targets, ical initiatives. Indeed, the need for military power de- overweening reliance on military power, and ineffective creases as the counterinsurgents make progress against nationbuilding — has been a signal U.S. failure in the ide- their insurgent enemies. This dance of nonmilitary and ological struggle against terrorism. military efforts in pursuit of political aims requires plan- Yet while the administration gambles away civil liber- ning, resources and choreography. ties at home and abandons human rights abroad, the U.S. Participants therefore need an overarching policy that military has recommitted itself to protecting the rights of defines the purposes of counterinsurgency, clarifies U.S. foreign citizens of all nationalities and faiths. Certainly government assumptions about the effort, and articulates this is only what international law requires. But who can the demands and expectations of each participant. The take such norms for granted these days? Precisely supporting military doctrine, like that from every other because it runs counter to the administration’s overall no- participant in the effort, should flow from that national holds-barred, destroy-the-village-to-save-it approach to policy. At present, the U.S. has it backward. There is no counterterrorism, the doctrine is radical and its future is national counterinsurgency policy. And, stuck with the uncertain. hot potatoes of Afghanistan and Iraq, military authorities Thus, the new approach needs tending and support by sought to fill the vacuum with a new field manual. civilians to make sure it is implemented. This will require

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support from above (through policy and politics in legal authorities to the substantive goals underlying Washington) and from below or alongside (through nationbuilding programs may need rethinking. The expanded capacity and partners in the field). The mili- Speaking Out column in the June FSJ noted USAID’s tary’s success ultimately will depend upon whether or not reluctance to support Afghan government programs to the civilian foreign affairs and national security communi- create “model schools,” efforts the U.S. military backs to ties define a congruent national counterinsurgency policy, undermine the radical Islamic religious schools (madras- identify their stake in its success, and help to shape and sas). But the government schools would also have reli- define it. gious content, and USAID is wary of funding them in light of the U.S. Constitution’s Establishment Clause. Such Needed: A National Policy sensibilities may be an unaffordable luxury when concern There are many urgent policy questions that military about insurgent violence is paramount. doctrine alone simply cannot address. The single most Likewise, U.S. agencies may need to abandon tradi- important of these is whether or not counterinsurgency tional political orthodoxies. Early elections, for example, will be used to support a revolutionary grand strategy — can be destabilizing and divisive. Privatization can dis- namely, destroying or transforming states. Such a purpose rupt services and cause social and economic dislocation. would contort counterinsurgency’s very nature. As a Four years into the Iraq War, the State and Defense method for stabilizing governments by enhancing their Departments and the military and embassy in the field legitimacy, counterinsurgency is self-evidently not suited are still bickering about economic policy, the relation- to destroying and replacing existing political systems. This ship of security to political reform, and the relative unanswered question should be the core of a broader power of military and civilian officials. We have seen debate about U.S. national security strategy. how tensions within the U.S. government — often Given recent experiences in Afghanistan and Iraq, it is between the military and civilian agencies — can pre- understandable that the bureaucracy and public suspect vent a coherent and unified counterinsurgency effort. A that better counterinsurgency tools will be used offen- national policy should provide guidance that can mini- sively against governments, rather than defensively to mize such enervating disputes. support or mend them. Secretary of State Condoleezza There are more problematic normative issues — ulti- Rice’s “transformational diplomacy” initiative, too, seems mately human rights questions — for a national coun- to beg this question. Indeed, the prospect that coun- terinsurgency policy to consider. What should the United terinsurgency concepts and capabilities would be dedi- States do when indigenous programs or policies run cated to regime change is sufficiently controversial, both counter to U.S. standards? Field Manual 3-24 accepts, in conceptually and politically, that it impedes efforts to the words of T.E. Lawrence (aka Lawrence of Arabia), improve U.S. practice. Before civilians build counterin- that it is better for the locals to do something tolerably surgency capability, they want to know what it is for. well than for the counterinsurgent to do it for them. At A national policy should tackle this larger issue head- what point, though, is the locals’ behavior no longer toler- on, delineating the purposes underlying it and identifying able? Will the line be drawn at local violations or when circumstances in which the principles underlying it are violations are national policy? When do the consequences most likely to succeed. The policy should also provide of withdrawing U.S. support risk greater rights violations? guidelines regarding the character of U.S. nationbuilding. These are among the toughest questions in counterin- Certainly if the goal is to support the host nation — surgency, and civilians must take responsibility for grap- instead of redesigning it in America’s image — the local pling with them. A national policy should articulate the government’s own values and choices should guide U.S. problem and offer guidelines for navigating these sensi- activities. tive differences between local human rights standards and The urgent need to achieve stability may force com- international or U.S. expectations. promises in other areas. A counterinsurgency policy Left to their own devices without policy guidance, mil- should force U.S. agencies to revisit their usual ways of itary forces must muddle through these issues. Generally doing business in the political, economic and social this entails defaulting to the most direct, and often short- spheres. Everything from accounting procedures and term, route to stability — working with the local power

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brokers rather than holding elections, for example, or pay- and elsewhere. This problem extends beyond bench ing young men for public works projects to get them off strength to include the ability to plan and conduct oper- the street. This can result in friction when civilians see ations. Many agencies have simply become contracting such efforts as properly non-military tasks or as inconsis- organizations, having lost the operational art entirely. tent with established procedures. National policy can And as we have seen in Iraq, contractors are not the per- help reduce this friction by defining counterinsurgency’s fect solution. Shrinking government in the name of effi- purpose and character, as well as the easier task of deter- ciency means losing capacity, whether in development mining (at least on paper) who calls which shots when. work or information operations. But it must also face the underlying issue of civilian abili- The State Department has sought additional financ- ty to take on its assigned tasks. ing and related expertise, as the creation of the Office of the Coordinator for Reconstruction and Stabilization Civilian Leadership and Capacity indicates. Even this partial success appears stillborn, In the same axiomatic way that counterinsurgency doc- though. For all the counterinsurgency demands it has trine cannot be revolutionary, it cannot be militarized. By created, the Bush administration appears uninterested definition a predominantly political affair, counterinsur- in fighting to fund and staff them. gency demands civilian leadership and action to achieve Understandably, there is also ambivalence within civil- its fundamental purpose. Yet within the U.S. government, ian agencies about counterinsurgency. The bureaucracy this has been largely a rhetorical conceit. seems supportive of nationbuilding when it is executed Civilians have been grossly under-resourced for the after a conflict, preferably with a U.N. mandate and plen- enormous demands made of them in Afghanistan, Iraq ty of multinational partners. But what about nationbuild-

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ing during a conflict? The Secretary of State had to ask one to make the changes and finance the huge investment DOD to fill the civilian billets on Iraq Provincial required unless counterinsurgency fits into a compelling Reconstruction Teams. Was this the result of a lack of national security strategy. eligible professionals, the politics of the Iraq War, or a broader disinclination, however sound, to assume physical Interagency Process Stalled risk? In September 2006, the State Department (with co- The State Department’s reluctant edging toward sponsorship from the Defense Department) hosted a con- directed assignments adumbrates the larger challenge. ference on “Counterinsurgency in the 21st Century: Terrorism has already made serving abroad a much high- Creating a National Framework.” It brought together a er-risk proposition; counterinsurgency only expands the who’s who of players in U.S. counterinsurgency. Using the risks for civilians. It provides little comfort to non-com- newly completed military doctrine as a springboard, the batants that the new Field Manual also demands more conveners sought to create a national counterinsurgency risk from soldiers. The Foreign Service has a great tradi- center and a plan for developing policy. tion of brave service in conflict zones. Yet if it cannot Interagency processes are difficult enough when most meet needs in the field, it risks irrelevance to the policies participants agree on the general goal but disagree about that matter most. If it stands aloof, it may come to regret the way to accomplish it. The counterinsurgency policy ceding counterinsurgency to the military or watching the effort appeared to lack consensus on both fronts. From emergence of an expeditionary civilian capacity that cre- the start, there was confusion about its purposes. Is this ates policy through its actions on the ground. policy intended to guide more large-scale invasions such Another aspect of enhancing civilian leadership is cre- as Iraq, or small-scale efforts with friendly governments ating a new — or, arguably, reviving an older — breed of like the Philippines? Is it a complement to counterterror- Foreign Service officer, one steeped in military culture ism strategy or its replacement? and familiar with the possibilities and limits of military Participants were also unsure how their agencies fit power. Professional specialization and broader trends in into the policy. USAID officials claim a role in develop- civil-military affairs have divorced civilians from their uni- ment and conflict prevention; S/CRS describes its focus as formed counterparts. The military’s size and commit- stability operations; other departments and agencies, such ment to education have allowed its officer corps to as Treasury and Agriculture, are comfortable contributing become far more conversant with civilian institutions and to nationbuilding. But counterinsurgency? One can culture than vice versa. Civilian agencies must address imagine officials asking themselves: How is this different this deficit. from what my agency already does? Will it require us to Thanks to two long-running wars, the nub of such a change? These distinctions are more than semantic, cadre is beginning to emerge. But there are few institu- reflecting assumptions about legitimacy, partners, tional processes for recognizing, nurturing and judicious- resources and levels of violence. Moreover, they have yet ly employing these pol-mil hybrids. to be answered. Finally, the fact that civilian authorities have not been Much of this dysfunction is familiar to any veteran of fully honest about the limits of their capacity is a lingering government. In the Lake Wobegon interagency process, problem. They have sometimes masked their shortfalls everyone is more important than average. The key issue with critiques of the military’s operational overreach and is who’s in charge, not what they should do. More energy its failure to provide them with security. They have insist- is spent explaining whose efforts are fundamental than ed upon retaining prerogatives even when they cannot how they will be carried out. Competencies are cataloged, carry out the corollary work. not assessed. No shortfalls are identified. The orientation Perhaps the executive agency bureaucracies fear that is procedural (this is how we will plan), not substantive the truth will render them irrelevant to policymaking. But (these are our operating principles). The same stovepipes perpetuating the myth of civilian partnership enables that contribute to dysfunction in the field are replicated in decisionmakers to eschew responsibility for building civil- the policy process. ian capacity. Brutal honesty may be the only way to cat- The policy review faces other challenges. Administra- alyze change. Still, civilians won’t be able to convince any- tion officials are preoccupied with the actual conduct of

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counterinsurgency. It’s difficult to fix the track while the ties on both the military and civilian sides. Turning away train is moving; but when the fixes require acknowledging from the doctrine could tempt reversion to a simpler mistakes, it’s even harder. Many key officials have moved approach to fighting insurgency, one of unfettered mili- on, and no one new has taken the reins. The upcoming tary power — the Vietnam War that some wish they presidential election also reduces incentives for the could have fought — and unfettered military authority, bureaucracy to really invest, because a new team may freed of political cognizance and coordination with civil- well demand its own policies. ians. Sadly, this threatens to leave the new Army and Marine Corps Field Manual in a vacuum. In outlining a The Way Ahead: A Bipartisan Commission practice of the good fight, it provides more than military Perhaps the issues are, at the moment, too complex doctrine. It suggests how to fight and win the “ideologi- and politicized to be left to the interagency process — cal struggle:” enshrine civilian protection, restrain the particularly in the final quarter of this administration. But use of military power, and recognize the primacy of pol- they are also too important to await a new president. itics. It offers the rest of the government an opportuni- Indeed, they should be part of the electoral debate about ty to recalibrate its approach to terrorism and even its the purposes and character of America’s role in the world national security strategy. What a missed opportunity, and the next administration’s national security policy. then, if civilians fail to build upon it. For these reasons, the president and Congress should Moreover, the Field Manual faces an uphill fight even establish a national bipartisan commission to craft a within the Army and Marine Corps. It has yet to be national counterinsurgency policy. It should be led by applied overseas, in part because of insufficient capaci- former senior officials who have earned respect across Home Suite Home

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SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 39 F OCUS

the aisles, and should include national security profes- the relevant agencies, including the military services that sionals of high stature. The panel should clarify when have labored so hard to get this policy ball rolling. But it and why counterinsurgency serves the national interest must be led by experienced individuals who are no longer and spell out the capabilities required to support it. captive to party or position. It needs meaningful support The policy must address meaty and nettlesome issues from Congress. Only recommendations from an external that Iraq raises, but doesn’t answer — questions that are bipartisan group like the Iraq Study Group have any vital for thinking about a broader national security strate- chance of serious consideration during the 2008 presiden- gy in the decade ahead. Will counterinsurgency capacity tial campaign and beyond. be used to topple and replace governments in the name of The battle against terrorism is part of a broader strug- Western values, or will it be used to stabilize fragile gle to sustain the international system and states within it. regimes whose opponents would be far less palatable to The United States currently lacks a coherent approach to Western interests? What criteria should the United States addressing either challenge. Though it cannot fully sub- use to assess whether a state deserves — or continues to stitute for a thoughtful and sustainable American nation- deserve — U.S. support? What accommodations to al security strategy that applies adequate U.S. resources indigenous concepts of governance, human rights and toward attainable ends, a national counterinsurgency pol- economic organization can the U.S. accept? When does icy can help fill a conceptual void, recommit the nation to counterinsurgency become plain old war? This effort the right side of an ideological struggle, allow for unity of needs courage and intellectual coherence, not lowest- purpose across the government, and help restore the U.S. common-denominator consensus. as a human rights standard-bearer through the challeng- The commission should include representatives from ing times ahead.

40 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 F OCUS ON H UMAN R IGHTS

THE FOLLYOFA SHORT-TERM APPROACH Ian Dodds

A BRITISH DIPLOMAT DESCRIBES THE CHALLENGES OF PROMOTING HUMAN RIGHTS WHEN A DICTATORSHIP IS ALSO A KEY ALLY.

BY CRAIG MURRAY

am very pleased to be offered the chance to pass on to you some thoughts on the con- flict between human rights and the “War on Terror,” drawn largely from my recent service as the United Kingdom’s ambassador to Uzbekistan. As a result of that experience, I should acknowledge, I was recently vetoed as a participant in a U.S.-sponsoredI seminar on that topic by a very senior State Department official, on the grounds that I was “vicious- ly anti-American.”

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That is not true, of course. I One of my inspirations Nonetheless, my diplomatic col- believe strongly in individual liberty leagues looked down their long in all spheres. Thus, I am a passion- was Walter Carrington, noses at Carrington with disdain, for ate supporter not just of democracy raising unpleasant subjects like tor- and human rights, but also of capi- the U.S. ambassador ture and execution at cocktail par- talism and free markets. ties. (I regret to say that some of the So how could someone with that to Nigeria from career subordinates in the U.S. belief set come to be perceived as embassy did the same.) anti-American? The answer is that I 1993 to 1997. The Abacha dictatorship hated do not believe that recent U.S. for- Carrington so much that the Niger- eign policy has promoted those ian armed forces even stormed the goals at all, but rather has been doing something very dif- ambassador’s farewell reception and arrested some ferent. Nigerian participants, a breach which was rightly con- demned by the U.S. Congress. But a grateful people did Walter Carrington Avenue not forget his efforts on their behalf, and soon after To illustrate what I mean, let me offer an example of Abacha’s downfall, the street on which the U.S. and diplomacy at its best. One of my inspirations was Walter British consulates in Lagos were situated was renamed by Carrington, the U.S. ambassador to Nigeria from 1993 to the local authorities as Walter Carrington Avenue. 1997. Amb. Carrington never accepted the brutal dicta- His example taught me a great lesson in diplomacy: torship of the Sani Abacha regime (1993-1998) and con- The relationship of an embassy should be with the people stantly went beyond normal diplomatic behavior in assist- of a country, not just with their authorities. Regimes that ing and encouraging human rights groups, and in making are hated by their people will never survive indefinitely, outspoken speeches on human rights and democracy. though they may endure a very long time. Carrington, as often in the U.S. system, was a political appointee rather than a career officer. That certainly A Perfect Failure meant he was free of the inherent caution that tends to Uzbekistan is undoubtedly one of the most vicious dic- bedevil long-term diplomats. But I do not view it as the tatorships on Earth. Freedom House ranks it as one of crucial factor that made him different. Many career offi- just five countries scoring a perfect 7 — complete lack of cials are just as dedicated as he, and many political ap- freedom — on both political rights and civil liberties. The pointees are overly concerned with status and networking. Heritage Foundation’s view of economic freedoms there Carrington’s approach was a direct challenge to the is similarly critical. In short, Uzbekistan does not follow British Embassy in Nigeria, which pursued a much more the Southeast Asian model of an authoritarian govern- traditional line of polite interaction with the president and ment overseeing a free economy and rapid economic his cohorts. This appeasement did us no good, as Abacha development. It is more akin to North Korea than to repeatedly moved against our interests; for example, he Singapore. Soviet institutions have been strengthened banned British Airways from flying into Nigeria. and corruption has increased. Only the iconography switched, from communism to nationalism. Ambassador Craig Murray resigned from the British Yet Uzbekistan was embraced as a Western ally fol- Diplomatic Service in February 2005 after more than two lowing the 9/11 attacks, becoming a member of the decades. He is now rector of the University of Dundee “Coalition of the Willing.” In 2002 alone the U.S. tax- and an honorary research fellow at the University of payer gave the Uzbek regime over $500 million, of Lancaster School of Law. His memoir of his time in which $120 million went to the armed forces, and $82 Uzbekistan, Murder in Samarkand, is available at million to what are arguably the world’s most vicious www.Amazon.co.uk. Paramount and Brad Pitt’s Plan B security services. Also during that year, according to production company are producing a movie based on that impeccable British government pathology evidence, at memoir, with filming scheduled to begin in February least one Uzbek dissident was boiled alive. The U.S. tax- 2008 under British director Michael Winterbottom. payer paid to heat the water.

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When I arrived in Tashkent as British ambassador in In that regard, I recommend U.S. Ambassador Mark August 2002, I was a 42-year-old career Diplomatic Palmer’s book Breaking the Real Axis of Evil to all serving Service officer with about 20 years’ service. I was “Fast diplomats. His position is underpinned by two basic Stream,” and well thought of. My four overseas postings tenets: “All people want freedom and can achieve it.” had run second secretary, first secretary, counselor, And: “In the sea of tyranny, a democratic embassy must ambassador, which is not a bad record. be an island of liberty and a steady, and not always subtle, It is perhaps significant that I had been selected to be proponent of change.” ambassador before 9/11, when priorities for Uzbekistan and the other former Soviet republics were rather differ- Five False Principles ent. During the late 1990s I had been deputy high com- I would most heartily endorse those assertions. missioner (the equivalent of your deputy chief of mission Lamentably, however, I do not believe many embassies, position) in Accra, and was thought to have a particular British or American, follow them in practice. I also expertise in democratization. In Ghana the U.K. financed believe the Palmer approach has been set back by the and, in large part, managed free and fair elections that “War on Terror.” That, I would argue, is due to embassies ended the 20-year rule of Jerry Rawlings and his party. I acting on the following “false principles,” which that war had led that process, incidentally with very good coopera- has brought to the fore: tion from our American colleagues. The Ghanaian elec- • Putting short-term expediency ahead of long-term tions followed years of work on building media and civil interests; society, and the country remains a tremendous model for • Pursuing specific sectoral or commercial interests as the rest of Africa. the interest of your whole nation;

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• Convincing yourself that your allies are good guys at pious Muslims, combined with a deepening poverty, is because they are your allies; and the most certain way to ensure continuing support for the • Following the “Precautionary Principle”: If things Islamic Movement of Uzbekistan. ... I quite understand the change, they will probably get worse. interest of the U.S. in strategic air bases, but I believe U.S. • Protecting one’s comfortable lifestyle and social sta- policy is misconceived. In the short term it may help fight tus by not criticizing local conditions. terrorism, but in the medium term it may promote it.” I may well enrage many readers of this magazine by At that time, Islamic fundamentalism was at an saying this, but in my experience this last principle is extremely low level in Uzbekistan. I know scores of sometimes the most powerful of all. Uzbeks, most of whom consider themselves good Like many of you reading this, I have paid my dues on Muslims, and only one who doesn’t drink vodka! But diplomatic lifestyle questions, having served in West Karimov was keen to portray all his opponents as linked to Africa (twice) and Central Asia. But in Tashkent my resi- al-Qaida. He used his torture chambers to extract confes- dence had a large outdoor pool, an eight-person indoor sions to that effect, and the CIA not only funded much of Jacuzzi and a separate pine sauna and marble Turkish the operation but was a major customer for the intelli- bath. We also had four indoor servants. gence from the torture chambers. I knew and confirmed The truth is this: While it can be tough at the lower lev- those facts while still ambassador. els, and there can be serious strains and disruptions, Torture was of the most brutal kind: insertion of Foreign Service officers do enjoy the compensation of a limbs in boiling liquid, smashing of knees and elbows, privileged lifestyle. They have very high social status, rape, sodomy, electrocution, mutilation of genitalia. attend a lot of cocktail parties and banquets, are invited to Hundreds of people endured such techniques every many social events, have great housing and pools, and are year. One evening, while I dined with an eminent dis- automatically accepted to membership in the best golf or sident in Samarkand, his grandson was abducted by country clubs. The personal comfort level can be very local militia from right outside the house and tortured high, and most of your socializing is done with the host to death. His body was dumped back on the doorstep country’s often-oligarchical elite, and with fellow diplo- in the early morning. mats who are unlikely to lose much sleep over human I also knew that the CIA was bringing in foreign pris- rights concerns. In contrast, the Walter Carrington ap- oners, using a front company called Premier Executive. proach causes a degree of conflict, discomfort and social They were being handed over to the Uzbek security ser- difficulty that many diplomats just do not want disturbing vices, a practice I protested as a blatant violation of Article their sybaritic lifestyles. 3 of the U.N. Convention Against Torture. I should be There, I have said it straight out, and you know damn plain that I did not realize at the time that Uzbekistan was well it is true in very many cases. If any diplomat reading a destination for the wider extraordinary rendition net- this article can swear to me that they do not know a senior work, as recently detailed in the Council of Europe colleague to whom it applies, I will send them 10 dollars! report. But I did know that our support for an increas- ingly unpopular dictatorship, where there was no outlet of Clearing a Path for Extremism any kind for free expression of political views, was driving On Sept. 16, 2002, I sent a cable back to London, sub- people away from the Western alternative and clearing sequently published by the European Parliament as part the path for Islamic extremism. of their report on extraordinary rendition, analyzing the That support was not only financial but political. In problems with U.S. policy in Uzbekistan. That contem- 2002 Karimov had been a guest in the White House. porary analysis dovetails neatly with some of the “False Throughout this period there was a veritable procession of Principles” outlined above. My principal criticism related senior U.S. civilian officials and military figures bearing to the first principle: putting short-term expediency over similar messages, not to mention the day-to-day pro- long-term interests. As I reported: nouncements of the U.S. ambassador. For instance, in .”.. [President Islam] Karimov is driving this resource- February 2004, during his third visit to Tashkent, Defense rich country towards economic ruin like an Abacha. And Secretary Donald Rumsfeld said at a press conference: “I the policy of increasing repression aimed indiscriminately brought the president the good wishes of President Bush

44 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 F OCUS

and our appreciation for their stalwart support in the War and the official version of what was happening. on Terror.” In real life, repression was tightening: There were It is almost impossible to describe, if you have not wit- more political prisoners, an increase in torture, more ban- nessed it, the obsessive attention to promoting Karimov’s ning of NGOs, more expulsions of Western media organi- personality cult by the entire Uzbek media and education zations, heavier censorship and more rigging or postpon- system. These U.S. endorsements were continually recy- ing of elections. There were also more nationalizations or cled and pumped out again and again by Karimov’s vast forced closures of enterprises, more forcible takeovers of propaganda machine. The suffering people of Uzbekistan foreign investors’ assets, more consolidation of key assets had no doubt whose side Washington was on — and it into the hands of the Karimov family, more closures of wasn’t theirs. That is short-termism, indeed. roads and dynamiting of bridges, more tariffs, more non- tariff barriers, and more physical sealing of the country’s Conflicting Narratives borders. My cable of Sept. 16, 2002, also referred to the third of Yet in the official narrative, censorship was ended, the false principles listed above — self-delusion. I wrote: political prisoners released, currency made convertible, “The U.S. are trying to prop up Karimov economically, agriculture reformed. The economy and trade boomed. and to justify this support they need to claim that a process The problem was that the official narrative was simply the of economic and political reform is under way. That they use of the “big lie” technique. The Uzbek ministers, ex- do so claim is either cynicism or self-delusion.” Soviet officials to a man, had no concept that the official In the period of the U.S.-Uzbek alliance, there was an account should match the truth. The amazing thing was astonishing mismatch between the reality on the ground, seeing U.S. officials struggling to believe them for the sake

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 45 F OCUS

of the alliance, and to persuade international organiza- becomes a useful proxy for the reform itself, and can be tions to accept the Uzbek narrative, as well. quoted as evidence of progress. It was a disheartening exercise to be party to compro- The U.S. paid a great deal of money for innumerable mises under which international organizations such as the inputs on media and legal training, yet the media and the International Monetary Fund would publish data some- legal system in Uzbekistan remain 100 percent not free. where between the official statistic published by the From 2002 to 2004, Washington repeated ad nauseam the Uzbek government and backed by Washington, and the claim that the existence of such programs itself was evi- truth — which often told the opposite story. This was dence of progress, and praised the intention of the Uzbek most sharply expressed in economic growth statistics, government to reform — even as several journalists who which were always accepted as positive even when the learned to respect freedom during such courses ended up economy was plainly in free fall. in jail (or worse) if they tried to practice their new knowl- At this time the U.S. was also defending Uzbekistan edge. For its part, the wily Karimov regime was very from well-deserved criticism at the U.N. Human Rights adept at playing along. Council and elsewhere. Such self-delusion opens you up to the accompanying danger of window-dressing. This is SOB Stories where the host dictatorship is very happy to accept your The American experience in Uzbekistan illustrates the consultants’ reports, training and courses on human rights adoption of false principles over true ones. It also beauti- or economic reform, without any intention at all of putting fully illustrates the entire fallacy of what I might call the any of the teaching or advice into practice. Then the exis- “He may be a son-of-a-bitch, but at least he’s our son-of-a- tence of the training workshops or consultants’ reports bitch” approach. An SOB is never “our” SOB. He is

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always his own man; indeed, that is what defines an SOB. were handed over to the Russian energy monopoly, Manuel Noriega, Saddam Hussein and Osama bin Gazprom. Laden were all “our” SOBs for long periods — before So the U.S. lost in Uzbekistan in every respect. It they bit the hand that was providing their support. forfeited its moral standing, acquiring a reputation in Karimov proved just as unreliable an ally. By May the Muslim world as a hypocritical and self-serving 2005 the argument that he was a reformer had already superpower, interested in democracy and human rights become untenable, when his troops massacred over 600 only when convenient. In return, the intelligence the almost entirely unarmed demonstrators in the town of U.S. gained from the torture chambers of the Karimov Andijan. Shortly thereafter he served the United States security services was self-serving propaganda that mud- with notice of eviction from its large air base at Karshi died the picture by providing a stream of false infor- Khanabad. mation exaggerating the strength of al-Qaida in Central There has been a concerted attempt by Republican Asia. institutes to rewrite history to pretend that the U.S. quit Elsewhere in the former communist bloc (e.g., the base in response to the Andijan massacre. But that Ukraine and Georgia), Washington backed the people is not true — the U.S. had no intention of leaving prior against their dictatorships. That policy contributed to being evicted. Moreover, the entire Peace Corps hugely to the successful revolutions that spread so much operation and dozens of U.S. NGOs were also evicted. freedom in the world. But in Uzbekistan, blinded by the Karimov quickly moved back into the Russian orbit, fol- short-term demands of the “War on Terror,” the U.S. lowing a deal struck by his daughter. In exchange for backed the dictatorship against the people. That is massive bribes, the country’s substantial gas reserves always a very bad call.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 47 FS FICTION LUCKY

AGAINST THE BLEAK, FROZEN LANDSCAPE OF A RUSSIAN WINTER, AN AMERICAN WOMAN FINDS AN UNEXPECTED PATH THROUGH HER GRIEF.

BY JOAN BROYLES ODEAN

tray dogs still run in packs in Moscow, an tion of that brief flurry of hostility had sapped the few ener- incongruous sight in such a large city and gy reserves he possessed that day. strangely reminiscent of a century ago Ben died just a year after he and Alice arrived in when livestock wandered the streets. The Moscow for her two-year tour of duty at the embassy. He dogs do not seem to belong in a civilized, was fine one day, and then abruptly he was gone from a modern capital, where eight lanes of traffic massive coronary. Alice went through the requisite duties running through the city are clogged with cars and trucks at — accompanying his body back to the U.S., the family Sall hours of the day and night. But still, one would often see meetings, the burial — all the events that she should have. a group of nine or 10 mangy, scrawny dogs, lethargic due to and did take care of with quiet composure. It was only lack of food, posing no real threat unless one ventured too when she had returned to post and started back to work that close. she realized she was always bone-weary. Exhausted. This Alice remembered one day when she and Ben had been was normal, people soothingly told her. She was dealing out for a walk. A pack of dogs had been lying in a loose with an emotional crisis, and she should just accept it. Get group, trying to gather some warmth from a late autumn out more. Try to forget. sun. Lulled into a false sense of security that they were harmless, Ben had approached the group for a closer look. Startled at this unwelcome intimacy, the alpha male dog rose abruptly and charged a few feet, barking and snarling. Alice found herself moving slowly, cautiously, in a quiet, Rattled, Ben and Alice had scurried away, nervously chuck- gray fog, which was reflected in the gray, white and black ling and looking over their shoulders to make sure fangs frozen landscape of a Russian winter. She retreated into a were not about to sink into their shins. But the large male cocoon of stillness; she felt as if she might shatter if she dog had just as quickly collapsed back down, as if the exer- moved too quickly, or if she encountered any jarring noise or activity. This story won second place in the Journal’s 2007 Foreign What a perfectly appropriate season to have half of one’s Service fiction contest. Other winning stories will appear heart cut out, she thought. It would have been much more in future issues of the FSJ. difficult to cope, she reflected idly one weekend morning as Joan Broyles Odean, an office management special- she lay in bed past noon, if she were posted in some lush ist, joined the Foreign Service in 1985. She has served tropical paradise with brightly colored flowers dripping in Geneva, Bonn, Tel Aviv, Oslo, Moscow and Washing- down white stucco walls and a hot, sensual sun beating ton, D.C. She is currently posted in Ottawa. down. No, this climate was much more conducive, much more compatible with the tone of her life now — the color-

48 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 less landscape matching the somber color she carried moved yet looked away — as one would look away from a around in her soul. beggar on the street. The poignancy and desperation of the It was tempting to stay in bed all day on the weekends, to dog giving birth to new life in a place that was warm, yet use the excuse of her grief and the cold outside to insulate surrounded by possibly hostile and certainly uncaring herself from condescending people and the inhospitable cli- strangers, was heartbreaking. And the fact that Alice felt mate. However, occasionally Alice would force herself to such compassion for the dog — after weeks of feeling noth- take long walks, both as a means to combat the claustropho- ing — made the intensity of the sadness stronger and more bia that would attack her when she hibernated too long in surprising. the quiet of her apartment and as a means to exhaust herself That night, back in her apartment, Alice lay in bed in the so that she could finally fall into the forgetfulness of sleep. dark, thinking of the dog. How did it get water? Food? It was a strange dichotomy — in one The desire to help the animal was respect, she found the effort of moving so strong that, at one point, she almost overwhelming because her princi- actually thought of getting up and pal desire was to remain buried in bed. returning to the subway station. On the other hand, the quiet and alone- Alice was surprised However, she pushed the thought ness of her apartment would crush her out of her mind. Hopefully, the with its solitude and she would feel an to see a stray dog — babushkas who cleaned the station irresistible urge to get out and be sur- at night, during the few hours when rounded by humanity. a bitch — huddled the stations were closed, would She would venture out on side streets have some compassion for the dogs and explore the old, crumbling Ortho- under a bench, and feed them. dox churches, which still held remarkable beauty even though so many were in dis- nursing a litter of repair. The bright splashes of blue or yel- low of their domes jarred the otherwise new puppies. The following Saturday, Alice monochromatic winter landscape. returned to the subway station to see if the dogs were still there. Of course, they were not. There was no sign of them. She didn’t know if One Sunday, Alice was walking down she felt relieved or even more dis- a busy thoroughfare, trying to keep pace with locals bun- couraged because she would never know what had hap- dled against the cold who moved with grim determination pened to the mother and her puppies. to their points of destination. There was a light freezing At a loss what to do after checking on the dog, Alice drizzle falling. Really, she thought, she should start making decided to ride the subway the half-hour or so out of her way back to her apartment before the sidewalks Moscow to the large outdoor market at Izmailovo. The out- became even icier than they were. The thought of the door market displayed crafts and antiques. She wandered warmth waiting for her there, no matter how sterile and among the brightly colored stalls full of lacquer boxes, alone, with a hot cup of tea in hand and a good book, painted icons and brightly painted matryoshka dolls, nod- became increasingly attractive. At the next corner, she spied ding at some of the vendors who recognized her from past a metro entrance, and she gratefully made her way down purchases. Ben had loved to come here, to admire and pur- the fast-moving escalators — down, down, into the depths chase the Russian crafts. This memory, of strolling the mar- of the Moscow subway. The air became warmer, although ket’s aisles with him and the ensuing melancholy, along with gritty with swirling dust and dirt. the bitter cold, drove her back to the subway, and she began Briskly walking down the corridor to her station plat- the trek back to the compound. Feeling restless, she left form, Alice was surprised to see a stray dog — a bitch — the subway earlier than her normal stop. Perhaps if she huddled under a bench, nursing a litter of new puppies. walked the rest of the way, she would be so frozen and “Well I’ll be damned,” Alice thought to herself. “How in exhausted that she could fall into dreamless sleep later in the world did that dog make it down here to give birth?” the apartment. The scrawny dog looked meekly up at Alice, as if she Waiting at a street corner to cross, she looked across the expected to be roughly ejected from the station. Alice was street and saw a large dog standing alone, which was unusu-

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 49 al. On a city street, either the dogs car window. “Puzhalsta,” she traveled in packs, or were pampered- pleaded. “Just a few blocks. Please, looking, fat pets restrained on tight What a perfectly we need help.” leashes by their owners. This dog The man eyed the money, the was remarkable for three reasons — appropriate season girl, and turned to look at the drip- it was huge, it was skinny, and its ping dog. He turned back and cowed demeanor was pathetic to have half of stared straight ahead. Alice dug into beyond measure. A sense of alone- her purse and drew out more ruble ness and misery flowed off the dog’s one’s heart cut out, notes. wet back in waves. It hesitantly “Please,” she tried once more. made its way toward a woman who she thought. Sighing heavily and grumbling was briskly walking toward it. The under his breath, the man curtly woman paused, whether out of com- nodded to the back of the car, and passion or fear, and then gave the Alice quickly opened the door, animal a wide berth. The dog low- pushed the dog in, and climbed in ered its head as she passed and sim- after it. ply stood, shaking and wet. “You need to feed your dog Alice stared at the poor thing. As Alice stuck her arm out in the more,” the man said to Alice, eye- people started to cross the street face of the oncoming traffic as the ing them both in the back seat. around her, she found herself joining cars hissed down the road. The cars “Too skinny.” the throng, walking straight toward whizzed by, some drivers looking “I know,” she replied simply, the dog. She approached the beast, curiously over at her. One car after deciding not to go into an explana- who had not moved since Alice first another would slow, but then, seeing tion that she had just found the dog saw it, and made her way slowly the large dog, quickly speed up on the street. Not knowing what around to its head. Aware that again. Alice stood resolutely with diseases or vermin the dog was car- someone had actually stopped in her arm out. She was determined. rying, the driver might wisely front of it, the dog looked up meek- She wondered what she was screech to a halt and demand that ly. Alice gazed helplessly at the dog; doing. She had never owned a dog. they both exit his car at once. its brown coat was matted and thor- Pets were complicated and certain- “Dogs are good,” the man con- oughly drenched. It was so skinny, it ly not conducive to a lifestyle tinued. “Good friends.” seemed to weigh almost nothing; yet where one moved every few years. Alice dubiously eyed her seat it was big — the dog came up to And most mornings, it was all that mate, who had lain down with a Alice’s waist. Soft, brown eyes held Alice could do to muster the ener- thump and a deep sigh beside her, hers. And Alice knew there was no gy to get herself up and out the grateful to be out of the cold driz- way she could turn away from this door to work. How would she care zle with a — hopefully — new creature. for a very large dog? friend. But what was she to do? How to Finally, a small Lada pulled up “Yes,” she replied. get it home? Of course, Alice had some distance past her. Alice no leash. She couldn’t pull it down gulped, looked at the dog, and ten- into the subway station. Nor could tatively grabbed its ruff. “Come she imagine a taxi driver agreeing to on, come with me,” she said gently, Once back at the embassy com- take the mongrel. She eyed the dog, wondering what the dog’s reaction pound, Alice guided the dog past who continued to meet her eyes in a to her hand on its neck would be. the guards to her apartment. steadfast stare, head lowered. The dark, mud-spattered Lada that Finally, they were up the steps, into Would it even come with her? sputtered to a stop had a middle- the foyer and, with a huge sigh of Sighing, Alice looked around, aged man in front. He waited for relief, Alice shut the door behind and decided to do something she Alice but, when he saw the wet her. The warmth of the apartment had never done before — hail a mass of dog, shook his head and hit her — and her guest— in a gypsy cab. Hopefully, if she flashed started to roll up his window. wave. The dog stood panting enough money, the driver would “Nyet,” he growled. slightly and weaving, looking at agree to take her — and the drip- “Please,” Alice said, thrusting Alice for guidance, as if it were ping dog. two hundred-ruble notes into the unsure what to do. Much of the

50 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 excess water had dripped off in the thing she had in the house that she cab, so it had stopped shivering. thought a dog might like — opened it Alice slowly pulled off her coat, Quietly, and dumped it into a bowl. The dog gloves and boots, all the while eyeing quickly lapped at the water but, sur- her guest. She was still not com- Alice pulled around prisingly, tackled the tuna fish more pletely confident that it would not daintily, as if savoring this delicacy. attempt to devour her for a well- a chair and sat on it, While the dog was intensely needed meal. If she didn’t show up focused on what was obviously its for work on Monday, would co- so that she was first full meal in days, Alice went to workers come to her apartment and the guest bedroom to pull a blan- find her half-eaten body, with a tri- eye-level with the dog, ket off the bed and made it into a umphant and much more energetic makeshift bed on the living room dog hovering over it? who patiently stared floor in a corner. She watched her Quietly, Alice pulled around a guest polish off its food, and then chair and sat, so that she was eye- back at her. led it, unresisting, to its new bed; level with the dog, who patiently with a deep growl, the animal col- stared back. Alice reached out a lapsed on the soft wool blanket, put hand and gently ran it down the dog’s its head down and, almost immedi- head. The dog softly sighed and ately, fell asleep, snoring lightly. closed its eyes momentarily, surren- “First things first.” She went into the Quietly, Alice lowered herself into dering blissfully to this small, unex- kitchen. “Come on.” She heard the a nearby chair and watched the pected and unusual feeling of affec- slow patter of feet behind her. deeply contented dog. tion. And Alice felt her heart thaw. Putting down a bowl of water, she The quiet of her home now had “Okay, dog,” Alice said softly. took a can of tuna fish — the only another feel to it — a feeling of

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SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 51 peace rather than stark loneliness. More clucking and hurried mut- The dog’s deep breathing testified terings in Russian. Shrugging, they to another force in the room. Alice The dog quickly sized up the dog. “We don’t know,” felt this presence and the connec- the woman said. “Obviously she is a tion with another being. lapped at the water mix of many things, but mostly wolfhound, we think.” The dog but, surprisingly, turned her soft eyes on Alice as if to apologize for her questionable her- The next day, she dealt with the tackled the tuna fish itage. And Alice smiled back. tasks of accommodating another “What will you call her?” the vet being in her life. She found the more daintily, as if asked. Alice wasn’t sure. She knew name of a married couple who were that to name the dog would be a vets who came out to her apart- savoring this turning point in their new relation- ment, clucking their tongues at the ship. It would mean that they now emaciated condition of the dog and, delicacy. belonged to one another. There Alice suspected, the wisdom of this would be no going back, no opening crazy American taking a mongrel the door and shooing the dog away. into her home. But there were evi- But Alice realized that that point had dently no serious diseases lurking in already passed when she grabbed the dog, and the vets only recom- seeking confirmation that all was well the dog’s scruff on a crowded, rainy mended some minor medications, vit- — for comfort, Alice thought. And, it Moscow street to pull her into the amins, good food and tender care. was confirmed that the “it” was in fact taxi. Those, Alice thought, she could give. a “she.” “Lucky,” Alice replied, putting During the examination, the dog kept “What is she? What breed of her hand protectively on the dog’s turning its head to look at her, as if dog?” Alice asked. back. “Her name is Lucky.”

52 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 LESSONS FROM NORTHERN IRELAND’S PEACE PROCESS

THE RECENT BREAKTHROUGH IN THE TROUBLED REGION COULD BE A MODEL FOR EASING OTHER SECTARIAN CONFLICTS.

BY ANDREW SENS

orn by sectarian conflict for many American member of an international commission created years, Northern Ireland at last is man- to help put paramilitary arms beyond use, so I’ve had a good aging to put old hatreds and paramili- deal of time to think about lessons that might be drawn tary violence aside. Recent elections from the Northern Ireland experience. What follows are confirmed the primacy of political some personal views about principles that might well be parties prepared to give peace a taken into account when thinking about how to bring an chance, allowing participation in governance by both of the ethnic or sectarian conflict to an end. Tprovince’s main communities. On May 8, responsibility for It seems to me that serious negotiations only became self-government was devolved from Westminster to an possible about 12 years ago, when the British government assembly in Belfast (Stormont) jointly headed by the moved from a long-term strategic focus on security — Democratic Unionist Party’s Ian Paisley and Sinn Fein’s which frequently led to actions that were provocative and Martin McGuiness. Given the fact that over the last 40 counterproductive — to a discussion of legitimate griev- years more than 3,600 people have died as a result of the ances. These talks eventually produced agreement on a “Troubles” in Northern Ireland, it is heartwarming to see more equal application of the rule of law, a structure for these two longtime adversaries now working together for power-sharing within the provincial government and, over the common good. time, reforms of institutions and practices that were seen by I have spent nearly 10 years in Belfast and Dublin as the one side or the other as discriminatory. A political basis for further progress came in 1998 when Andrew Sens, a Foreign Service officer from 1966 to 1997, the British and Irish governments and the political parties served in Uganda, France, Norway, Iran, Pakistan, Argen- representing both communities in Northern Ireland con- tina and Washington, D.C. His last assignment was as exec- cluded the Good Friday Agreement — as Nationalists, usu- utive secretary to the National Security Council. Since retir- ally Catholic, refer to it — or the Belfast Agreement — as ing from the Service, he has served as the American member Unionists, usually Protestant, call it. (Unionists are deter- of the Independent International Commission on Decom- mined to maintain Northern Ireland’s link to the United missioning, set up by the British and Irish governments in Kingdom, while Nationalists seek the eventual reunification 1997 in Belfast and Dublin to facilitate the disposal of para- of the six counties that form the U.K. province of Ulster military arms from both sides of the Northern Ireland con- with the 26 counties that make up the Republic of Ireland.) flict. He also lectures and consults. This pact outlined a power-sharing political structure to

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 53 protect the rights of both groups. law are not constructive practices, no The agreement urged all parties to matter how time-honored they may use their influence to encourage the Ten years may seem be. In Northern Ireland the process decommissioning of the paramilitary of nurturing this understanding was arms that have bedeviled politics in like a long time to called “decommissioning mind-sets.” the region for a long time. Our group, It takes courage and vision on the the Independent International Com- pursue negotiations, part of political and civic leaders on mission on Decommissioning, was both sides. created to facilitate this task. As the but it is quite brief in Each side must recognize that political talks between the two gov- its opponent has rights. In ernments and the various political the context of a conflict Northern Ireland, this attitude is parties of Northern Ireland began to called “parity of esteem.” I think it mature, we were able to begin face- that dates back many boils down to simple good manners. to-face negotiations with a team from No matter how much you detest the the Irish Republican Army. generations. other group’s ideas, leaders and prac- Building trust took patience and tices, demonizing people or their cul- time, but in late 2001 we saw an initial ture isn’t constructive in the long run. amount of the group’s weapons put It is useful to bear in mind that just a beyond use. Further quantities of few years ago, republican leaders in arms were decommissioned in 2002 believe are broadly relevant to other Northern Ireland were publicly and 2003. Then, in September 2005, ethnic and sectarian conflicts follow labeled “terrorists.” Yet British Prime my two colleagues and I witnessed the here. Minister Tony Blair recently hailed disposal of the last of the IRA’s sub- Patience is critical. Ten years those same figures in Parliament as stantial arsenal. None of the parties to may seem like a long time to pursue “statesmen.” the conflict disputed our statement negotiations, but it is quite brief in It is not productive in an eth- that Republican weapons had been the context of a conflict that dates nic or sectarian conflict to expect taken out of Irish politics at last. back many generations. that either side will admit to Of course, the burden of negotiat- Military might is not enough. wrongdoing. “Acts of completion” ing details of this complex agreement People often say they badly want (sitting down in government to share and creating a political package peace but, of course, not at any price. in making public policy, decommis- acceptable to both the nationalist and Sure! But what does that mean? sioning weapons and standing down unionist communities fell to the Each side may be certain it will not paramilitary organizations, etc.) are British and Irish governments and be defeated, but objective viewers essential. But acts of contrition (aton- Northern Ireland’s political parties. can see that neither will be able to ing for one’s history) are likely to be Despite a genuine commitment by win. “Unleashing the security ser- impossible, and demands for them political and civic leaders, progress vices,” as some participants in these will only stall the peace process. As a toward standing up a power-sharing conflicts frequently demand, is not distinguished panel of international government on a permanent footing, likely to erase the other side’s sense of advisers headed by former Senator as with the decommissioning of arms, grievance or refute its arguments. George Mitchell told the British and was often slow and hesitant. Too Nor will that tactic dismantle the Irish governments in 1995, peace is often it seemed that we would never opposition’s organization and infra- unlikely unless both sides accept that see devolved government based on structure once and for all — at least there will be “no surrender and no support from both communities, or not at a price that most societies can defeat.” paramilitary weapons really removed accept today. Face-to-face negotiations are from circulation. Negotiations do not have to be essential at an early stage. Such Today, though, both these goals a zero-sum game. Frequently in interactions demonstrate to both con- have been substantially accomplish- these conflicts there will be two win- stituencies that their grievances can ed. While the political history of the ners, or no winner; peace, or endless be addressed and political objectives “Troubles” has been described in stalemate with continuing hatred and can be achieved through the democ- many books (and there are surely violence. Sectarian behavior, dis- ratic process. Participants should more to come), some lessons from crimination in word and deed, and spell out what they need to end the Northern Ireland’s experience that I the unequal application of the rule of conflict and follow through when they

54 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 Extremists must not be allowed to derail the peace process.

make commitments. Implementation of those pledges must be monitored, and outside observers may be needed to ensure impartial judgments. Extremists must not be allowed to derail the peace process. Some irreconcilables will try very hard to block change, and both sides ought to expect this. The partners must be prepared to stay with the negotiating process, no matter how tempting the short-term political benefits of walk- ing out. The 1998 bomb in Omagh that killed 29 people shopping on a Saturday morning was intended to make the Belfast/Good Friday Agreement — just concluded and endorsed strongly in referendums in Northern Ireland and in the Re- public of Ireland — impossible to implement. Wise leaders and the people of Northern Ireland did not let this happen. It is essential to explain early on to supporters that compromise will be necessary if there is to be an end to conflict. This may even mean accepting that one’s own side may have been wrong at times on some issues. And it may entail giving up something that one can live with- out in order to keep something that is critical. Like so much else in the peace process, the necessity of such trade-offs requires courage and leadership. Perhaps the most important lesson of all is simply to think the unthink- able: peace is possible. The sooner those engaged in sectarian or ethnic conflict recognize this, the better!

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 55 THE BOXER SIEGE: A PRECEDENT FOR THE IRANIAN HOSTAGE CRISIS

THESE TWO MAJOR BREACHES OF DIPLOMATIC FACILITIES WERE SEPARATED BY EIGHT DECADES AND THOUSANDS OF MILES. BUT THEY HAVE MUCH IN COMMON.

BY MOORHEAD KENNEDY

ehran’s two-week detention of 15 quences, however, the Iranian students’ takeover of Em- British sailors this spring inevitably bassy Tehran in 1979 and the Chinese dissidents’ attack on calls to mind the much longer hostage Western embassies in Peking in 1900 were remarkably sim- crisis involving 52 U.S. diplomats ilar. One sheds light on the other. Most importantly, both (including the author), who were held were tipping points, both in the acceleration of change and by Iranian students from November in the two countries’ relations with the West, including the 1979 until January 1981. But a similar crisis that erupted United States. Tduring the summer of 1900, the siege by Chinese dissidents of the foreign diplomatic missions in Beijing — then known The Storm Gathers and here referred to as Peking — remains obscure. In December 1899, the U.S. legation in Peking received In terms of causes, reactions, behaviors and conse- a telegram from American missionaries in Shantung province, on the Northeast China coast. It warned: “Unless Moorhead Kennedy, J.D., LL.D., DPS, entered the Foreign the legations combine pressure, Americans consider the Service in 1960. Overseas, he served in Yemen, Greece, situation almost hopeless.” The next month, British Lebanon, Chile and Iran. While in Washington, he founded missionaries sent a similar warning to their legation about a and was the first director of the Office of Investment Affairs secret society, “The Fists of Righteous Harmony,” now (1971-1974), the first time that the State Department known as the Boxers. addressed institutionally the international role of major cor- These were peasants dedicated to ridding China of porations. In Tehran, his final overseas post, he was held “foreign devils.” They supported the fading imperial hostage from 1979 to 1981, after which he received the dynasty, headed by the regent, referred to as the Dowager department’s Medal for Valor. Empress. In return, she issued an imperial edict on Jan. 11, Following his release and retirement from the Foreign 1900, praising the Boxers as “peaceful and law-abiding Service, Dr. Kennedy applied lessons learned throughout his people who … combine for the mutual protection of the career, and especially in captivity, to cross-cultural problems rural population.” abroad and in the United States. A frequent lecturer and TV In March 1900, as the situation in the region commentator on the American response to terrorism, he has deteriorated, the diplomatic chiefs of mission in the capital published three books: The Moral Authority of Government met to consider calling for naval reinforcements, but (with R. Gordon Hoxie, Brenda Repland, ed.; Transaction stopped short of doing so. The next month, the Dowager Publishers, 1999); Think About Terrorism: The New War- Empress issued another edict, obviously intended to fare (with Terrell E. Arnold; Walker and Company, 1988); reassure the foreigners. It denounced the Boxers by name and The Ayatollah in the Cathedral: Reflections of a Hostage and concluded, “Let all tremblingly obey!” The diplomatic (Hill and Wang, 1986), in addition to many articles in vari- corps thought this satisfactory, at least until May 17, when ous periodicals and collections. three villages were destroyed and 61 Christian converts

56 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 massacred, only 90 miles from Peking. Two days later, a Khomeini, the religious leader, had everything under London mission chapel within 40 miles of the capital was control. Knowing that wasn’t true, I felt sick to my stomach burned to the ground. repeating this nonsense. (Years later, one of the bankers But as the French Roman Catholic Vicar-Apostolic, told me that they knew I was lying.) Monseigneur Favier, wrote to Stephane Pichon, the French minister, on May 19, 1900: “The religious persecution is “Cold Is Our Colleague’s Brow” only a façade; the ultimate aim is the extermination of all Back to China. By May 28, 1900, rail and telegraph lines Europeans. … The date of the attack has actually been in the capital were being cut, even as legation families, with fixed. Everybody knows it. It is the talk of the town.” small children, picnicked off in the hills. Three days later The Vicar-Apostolic was regarded as extremely well- reinforcements from Tientsin, 337 officers and men, led by informed, yet when the diplomatic corps met again on May a detachment of U.S. Marines but including British, 20 to decide whether to send for guards from Tientsin, a French, Italian, Japanese and Russians, marched into the nearby treaty port (autonomous foreign settlement), they Legation Quarter. Germans and Austrians soon followed. decided not to do so. After the meeting, the British On June 3, 1900, two more British missionaries were minister, Sir Claude MacDonald, wrote to the Foreign murdered. Ten days later, a contemporary recorded: “A Office, “Little has come to my attention to confirm the full-fledged Boxer was seen on Legation Street, with his hair gloomy anticipations of the French father.” In its obituary tied up, red cloth, red ribbons around his wrists and ankles, of Sir Claude, published while he was alive, but believed to and a flaming red girdle tightening his loose white ankles. have been killed by the Boxers, the London Times would He was ostentatiously sharpening a knife.” declare: “How the British minister (and others) failed to see Even as attacks on Westerners mounted, the diplomatic any signs of the coming storm, is a mystery which will corps decided not to accept an ultimatum from the Chinese probably now remain forever unresolved.” Foreign Ministry that they evacuate to Tientsin. The chiefs It was not until the diplomatic racecourse was burnt to of mission believed that even though it was dangerous to stay the ground, and two British envoys had to shoot their way put, to make the journey meant certain destruction. So, as out of an ambush, that the Western legations in the capital experienced diplomats, they temporized, asking for further began to take their situation seriously. Even then, they failed details. When no reply from the Foreign Ministry was to recognize how dependent the Dowager Empress and the forthcoming, the German minister, Klemens Freiherr von imperial institution were on the Boxers’ attacks on foreigners Ketteler, set out to demand one. En route, he was ambush- to divert public opinion away from their own failings. ed and killed, provoking (in true Victorian style) a poem: Still, let’s not be too hard on them. Nearly eight decades Make haste! Make haste! Cold is our colleague’s brow; later, the U.S. embassy in Tehran was just as much at fault. He whom we loved lies bleeding, butchered, low; Several months into our captivity, one of the leaders of the While round our walls his murderers scream and yell, student militants, Hossein Sheikholislam, demanded of Drunk with the blood they shed when Ketteler fell. some of us: “Every schoolchild in South Tehran knew that Meanwhile, missionaries and civilians of all kinds poured we were going to take you over! Why didn’t you?” into the Legation Quarter seeking refuge. With the British Just before our takeover, students were marching past legation as the center and command post, members of each the embassy, shouting “Death to America!” To improve of the eight missions were assigned to different locations their living conditions, they were taking over hotels without (for example, the Norwegians ended up in the stables). Sir any interference from the central government. I remember Claude, who had once served with the Highland Light asking the head of the U.S. Chamber of Commerce what Infantry, took over as commander in chief. He lacked, the students would take over next. Of course, the students however, the authority to give direct orders to the various were testing for limits — and we were next. Yet we failed to national contingents, and did so only through notes to their realize that in the semi-anarchy of the Iranian Revolution, several ministers and chargés d’affaires. any group that seized the U.S. embassy would bring about The small band of 20 officers and 389 enlisted men from the collapse of the weak provisional government that had eight Western nations prepared their defense, reinforced by succeeded the shah, and put itself into a very strong posi- 75 armed volunteers with past military experience, and 35 tion. Moreover, taking over the embassy would galvanize a more who clearly lacked any. Each group had different revolution for which enthusiasm was clearly waning. kinds of rifles, and the supply of ammunition was short. I remember in those last days repeating to two American There were four pieces of light artillery, and the Americans bankers the official embassy line that Ayatollah Ruhollah had a Colt heavy machine gun. Fortunately, the area had

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 57 plenty of water from five wells and forces rallied one last time, the adequate supplies of food and bever- dispatch went on, and then all were ages. It was not until the “put to the sword in a most atrocious What kept everyone going was manner.” the belief that relief was on the way. attacks resumed that the Meanwhile, Western reinforce- Unfortunately, it wasn’t — at least ments finally mobilized. Addressing not yet. Western legations in his East Asiatic Corps embarking at Bremerhaven, Kaiser Wilhelm com- “The Foreigners Are Beijing began to take pared them to Attila and his Huns. in the Stew-Pot” That gave the Germans a nickname Outside the besieged district, the their situation seriously. that survived into the coming First combined forces of Chinese regular World War. troops and Boxers substantially Once the international forces outnumbered the Westerners. They captured Tientsin, paving the way for had two Krupp artillery pieces at their the relief of the legations in Peking, disposal in addition to plentiful guns the Chinese resumed the barrage. the besiegers stopped shooting, and and ammunition. As the Dowager The Dowager Empress had changed correspondence between the West- Empress said to Prince Tuan of the her mind. ern diplomats and Chinese official- Foreign Ministry, who would soon be Nor was this the only instance of dom resumed. Ultimately, the inter- placed in charge of the Boxers, “The bewildering behavior on the part of national relief force stormed into foreigners are in the stew-pot.” the siege force. On one occasion, by Peking, the Dowager Empress fled, Eager to overrun their foes before command of the Dowager Empress, and it was all over but the looting. relief could arrive from the coast, the the Boxers sent carts laden with Boxers began firing on June 20, 1900, melons, vegetables, ice and flour into Four Parallels pouring up to 200,000 rounds a night the perimeter. Some diplomats I now want to turn to the reasons into the compound. But even though argued that the food should be sent why, eight decades apart, these diplo- they were outnumbered and pinned back; instead, “melon clubs” were matic missions were attacked, and down, the Western forces became formed to consume the fruit with what all this signifies for us today. increasingly effective. On June 24, the claret. Beginning with Tehran in 1979, let’s Germans and Americans jointly (Another parallel: I recall that, in look at four underlying causes, gener- staged a counterattack, enabling both Tehran, after our captors had held one ally interrelated, of both episodes. to build new walls. But the best of of their monthly parties to celebrate Too-rapid economic change. A the troops, it turned out, were the our capture, they gave us the uneaten primary goal of Muhammad Reza Japanese. Once dismissed by the cookies. “If we had any morals,” said Shah Pahlavi was to turn Iran as European and American diplomats as Rick Kupke, one of my cellmates, “we rapidly as possible into a modern state. “mere Orientals,” they exhibited wouldn’t touch the stuff!” But, of For instance, with strong American courage, cheerfulness and depend- course, we wolfed them down.) encouragement the shah introduced a ability. Just a few weeks into the siege, the program of land reform. Traditionally, Among the civilians, distinct Boxers turned out to be militarily Iranian landlords provided the capital, personalities emerged, sometimes useless, and the viceroys in the various water, seed, bullocks and the land with less than happy results. For provinces were growing more and itself, while the peasants supplied the instance, the French minister kept more reluctant to send troops. In labor. That system worked. But once repeating: “We’re all going to die!” addition, world public opinion was the land was redistributed to the Suddenly, on the afternoon of June turning against the Chinese. On July peasants, they had no access to the 25, 1900, a horn and bugles sounded. 16, 1900, an article in the Daily Mail, capital they needed to obtain the Then a huge white signboard com- datelined Shanghai and headlined water, seed and motive power for their municated a new edict from the “The Peking Massacre,” purported newly acquired land. Deracinated, empress: “In accordance with the to describe how the Chinese had bewildered and ill-equipped psych- imperial commands to protect the brought up artillery and were ologically for modern industrial ministers, firing will cease immediate- repulsed again and again, only society, they swarmed into the cities, ly.” The legations acknowledged the prevailing when the legation forces relying for support on what no one message, but just three hours later, ran out of ammunition. The legation could take away: their Islamic faith.

58 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 Cultural conflict. Similarly, com- two decades later he returned, with pulsory Westernization was a threat to momentous consequences. Iranians’ national identity. The over- What kept everyone Corruption, oppression and in- throw of the shah in 1978 not only competence in the ruling institution. brought liberation from an oppressive going was the belief that Washington supported the shah, as regime, but freedom to be Iranian Henry Kissinger explained, because again. Unfortunately, in their euphor- relief was on the way. he was modernizing his people, was ia, liberal Iranians forgot that the only pro-American and was against the political structure that had survived Unfortunately, Russians. Essentially, Cold War con- years of repression was the exceed- siderations made us support a regime ingly illiberal Islamic clergy. it wasn’t — that was corrupt, enforced its so-called Foreign intervention/imperialist reforms through oppression, and was misconduct. The British and, later, the at least not yet. deeply incompetent to boot. Americans viewed themselves, not the Amnesty International character- Iranians, as the prime actors in the ized the shah’s regime as among the country. In 1907, for instance, the worst violators of human rights in the British and the Russians effective- world. When President Jimmy Car- ly partitioned Iran into spheres of Later, in 1956, a status-of-forces ter declared human rights to be the influence. And in the early 1950s, agreement exempted all American centerpiece of his foreign policy, the when Iranian Prime Minister Mo- military personnel from the Iranian shah’s regime took him seriously, and hammad Mossadeq nationalized Brit- justice system. A then-obscure mul- eased up on the dissidents. But as ish Oil (now British Petroleum), the lah named Ruhollah Khomeini pro- soon as the Carter administration CIA intervened to overthrow him and tested strongly against this exemption made it clear that it would support the restore the exiled shah. That was not as a violation of Iranian sovereignty, shah at all costs, the regime resumed forgotten. and was exiled to Iraq. As we all know, its crackdown. Some of my captors,

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 59 members of a student group that grew privileges in Shantung province, and out of Tehran University, had spent Japan did the same in Fukien pro- time in his prisons. The British and, later, vince opposite Taiwan (which it had Let’s now apply these same criteria seized in the 1894 war). For its part, to China a century ago. the Americans viewed Britain demanded a zone of control in Too-rapid economic change. The the Yangtse Valley. 19th century was the great age of themselves, not the And the Americans? Of course, we railroads, mines and telegraph lines, disapproved of such immoral conduct. which nearly all of us regard as signs of Iranians, as the prime Yet throughout this period, we nego- progress. For the Chinese, how- tiated and got, without territorial ac- ever, such innovations not only flew in actors in the country. quisition, many of the concessions that the face of venerable traditions but other powers had forced from the were foreign imports. Moreover, bur- Chinese. In the words of a somewhat ial grounds were everywhere, so acidulous Brit: “If American idealism scarcely a mile of track could be laid was quick to condemn the imperial- or a mine dug without desecrating the exacerbated by the behavior of foreign ists for summarily shaking the tree, graves of someone’s ancestors. governments. American opportunism was not far Cultural conflict. Roman Catholic Foreign intervention/imperialist behind in picking up the fruit.” missionaries were singled out for misconduct. Let me give just a few Chinese sovereignty was violated in abuse because they were officially examples. In 1842, in order to rectify humiliating ways. The foreign settle- protected by the French govern- an adverse balance of trade, and over ments in Shanghai, Tientsin and other ment, as guaranteed by a treaty of strong Chinese objections, the British treaty ports were all under Wes- 1860, but the same privileges were enforced the importation of opium tern — not Chinese — jurisdiction. extended to Protestants. Nearly all into China. This led to the Opium The sign reportedly erected in the Western missionaries offended Chin- Wars and the Treaty of Nanking, from main park in Shanghai is telling: “No ese sensibilities in ways that they which the British gained Hong Kong, dogs or Chinese allowed.” It is no were not always aware of. For among other concessions. During the coincidence that the Boxers came out instance, the spires of churches, like Second Opium War, the British and of Shantung province, where the most railroads and telegraph lines, French seized Peking and destroyed egregious violations of Chinese sover- offended the feng-shui of the spirits the Summer Palace in 1860. eignty and self-respect had recently of wind and water. After the disastrous and humilia- taken place. It has been said that the Chinese, ting defeat of China by Japan in 1894- Channeling discontent against the beyond a vague faith, are not naturally 1895, in a war over Korea, China’s foreigners, while expressing strident religious. Buddhism, Taoism and weakness became even more ap- support for the Manchu Dynasty, the Confucianism all mix. But what is parent, and foreign rapacity greater. Boxers were exploited to divert at- distinctively Chinese is ancestor wor- In 1897, capitalizing on the murder of tention away from where blame really ship, which the missionaries — and two missionaries, the Germans forced belonged: within the Forbidden City, not only the Roman Catholics — Peking to sign a 99-year lease of in the person of the Dowager Em- resolutely opposed. Converts to Kiaochow Bay and city of Tsingtao, press and the mandarins who sur- Christianity were forbidden to take and grant extensive railway conces- rounded her. It was a time of des- part in such idolatry. This meant that sions, all in Shantung province. peration. China seemed about to be converts not only did not participate in The next year, under the threat of carved up by foreign powers, just like village rites, but refused to pay for hostile measures, Russia forced a lease Africa. The imperial government was them, thereby increasing the financial of Port Arthur and Darien, and in no position to resist them. burden on the ancestor worshippers. railroad connections to both, in Man- Corruption, oppression and in- For these and other reasons, mis- churia. And France forced the con- competence in the ruling institution. sionaries and their converts were cession of a naval base in South- Important as the first three factors I’ve widely hated, not because of theolo- eastern China, and acquired spheres listed were, the utter failure of govern- gical differences but because they of influence in Kwantung, Kwangsi ance contributed significantly to the were foreigners, and protected by and Yunnan provinces. mounting unrest. Two successive foreign governments. And these Spheres of influence became all harvests had failed and the Yellow deep-seated xenophobic feelings were the rage. Germany claimed exclusive River had flooded. The new Chinese

60 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 Navy had been overwhelmingly and first Bush administrations. defeated by the Japanese off the Yalu Jimmy Carter’s outgoing adminis- River in 1894, yet the money meant to Both incidents were tration then took advantage of Iran’s reconstitute it went into rebuilding weakness to negotiate our way out. the Summer Palace. These military tipping points in the Both episodes were associated and natural disasters (and others) with a failure of imperial and dicta- combined to highlight the corruption acceleration of change torial rule. Iran and China were both and incompetence of the imperial astir with the need for reform and court itself, giving it a powerful and in relations with democratic rule. The Chinese Re- incentive to turn the focus elsewhere public was proclaimed in 1911. — such as to the “foreign devils.” the West, including the Still, one should recall that in both countries, early promising democratic Beware of Unintended United States. aspirations led only to dictatorship. Consequences Iran still is governed by mullahs; I would be remiss if I failed to indeed, some of the shah’s torturers point out one key distinction between went to work for them, as we knew the two episodes. Those of us taken first-hand. For its part, China is still hostage in Tehran had no foreign governed by the absolutist Commun- settlements, no treaty port base on part of the West. Rather, we owe our ist Party. the coast from which a relief expedi- release in large measure to the Most importantly, both episodes tion might be mounted. invasion of Iran by Iraq, under were a reaction against Western Still, our release on Jan. 20, 1981, President Saddam Hussein, in the fall imperialism — a lesson I still hope was no less the result of military of 1980, a military venture that would the United States will one day take to action — but not, as in 1900, on the be strongly assisted by the Reagan heart.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 61

AFSAAmerican Foreign Service AssociationNEWS • September 2007

2007 AFSA AWARDS CEREMONY Honoring Dissent and Performance This Issue in Brief: in the Foreign Service BRIEFS: PASSPORT VOLUNTEERS.....64 VP STATE: MEA CULPA...... 65 BY SHAWN DORMAN AFSA AWARD WINNERS...... 66 here was standing room only in the DISSENT AWARD WINNERS...... 67 State Department’s Benjamin Frank- PERFORMANCE AWARD WINNERS ..69 Tlin Diplomatic Reception Room on VP FCS: MOU SIGNED...... 72 June 28 when AFSA President Anthony YOUTH AWARDS...... 74 Holmes welcomed the distinguished guests, PREVENT IDENTITY THEFT...... 76 award winners and award presenters to the 40th annual AFSA Awards Ceremony. MIKKELA THOMPSON Amb. Tony Holmes, Secretary Larry Eagleburger Winners of the AFSA Constructive Dissent and AFSA Governing Board member Andrew EYE ON ASSIGNMENTS Awards, outstanding performance awards Young at the AFSA Awards Ceremony. and the Lifetime Contributions to Ameri- can Diplomacy Award were all honored at Department, and particularly the director Fair Share the ceremony. general, for co-sponsoring the event with Compromise Amb. Holmes thanked the State Continued on page 66 oncluding several months of nego- tiation, AFSA and the director gen- NEW AFSA GOVERNING BOARD TAKES OFFICE Ceral reached a compromise agree- ment in June on the latest changes proposed Changing of the Guard for the Foreign Service assignment system at State. AFSA urges members to review n July 16, the official AFSA gavel highlighting the atypical nature of the past these adjustments to the assignments rules was passed from outgoing President two years for AFSA and the Foreign Service. in the context of this extremely difficult peri- OJ. Anthony Holmes to the incom- The State Department created the biggest od in which the Foreign Service has hun- ing president, John Naland, as a new AFSA embassy in the world, in a war zone. dreds of positions to fill in two war zones Governing Board began its 2007-2009 term. Secretary of State Condoleezza Rice and at other unaccompanied, danger-pay Amb. Holmes gave a gracious speech announced her Transformational Diplo- posts. Some tightening of the assignment macy initiative along with the global repo- rules is inevitable as AFSA tries to preserve sitioning of hundreds of Foreign Service the voluntary nature of the bidding system. jobs. During the outgoing board’s tenure, The two proposals from the DG were management overhauled the assignment aimed at further reorienting the Foreign rules, and AFSA negotiated on behalf of Service toward hardship postings and Foreign Service members to try to ensure helping ease the staffing crisis at the most fairness in the system. hard-to-fill unaccompanied posts. They Holmes also assured the new board that were: it was inheriting a well-run organization that 1) To replace the current six-year limit SHAWN DORMAN Outgoing AFSA President Tony Holmes hands off is in strong financial health. He said it had on consecutive domestic service with a five- the gavel to the incoming president, John Naland. Continued on page 72 Continued on page 71

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 63 A F S A N AFSANEWSBRIEFS E W AFSA Encourages Members to S CORRECTION The title of the July/August AFSA News article, “AFSA Press Volunteer for Passport Duty Conference Draws Major Media Coverage,” was incorrect. n unprecedented demand for U.S. passport services It should have been, “Foreign Affairs Council Press Conference has occurred in recent months due to a change in Draws Major Media Coverage.” AFSA hosted the press A conference and is a member of the Foreign Affairs Council, international travel law. The catalyst for increased demand but the press conference was an FAC event. We regret the error. for new passports was the Western Hemisphere Travel Initiative, which took effect on Jan. 23. The WHTI requires all citizens of the United States, Canada, Mexico Life in the Foreign Service and Bermuda to have a passport or other accepted docu- BY BRIAN AGGELER ment that establishes the bearer’s identity and nationality to enter or re-enter the United States from within the Western Hemisphere. A significant backlog developed in processing passport applications, leading the State Department to form a Passport Task Force and to increase the number of person- nel temporarily staffing passport services. The aim is to return processing time to normal levels by the end of September. AFSA supports the vital work of the Passport Task Force and has assisted with the effort by encouraging AFSA mem- bers to volunteer for passport duty and transmitting calls for volunteers to our membership via AFSAnet. In addi- tion, AFSA has held several collective meetings with mem- bers in order to help alleviate the concerns of entry-level employees (including the most recent A-100 class) who have been seconded out of training to passport duty.

AFSA HEADQUARTERS: Staff: Governing Board: (202) 338-4045; Fax: (202) 338-6820 Executive Director John Mamone: [email protected] Business Department STATE DEPARTMENT AFSA OFFICE: PRESIDENT: John Naland (202) 647-8160; Fax: (202) 647-0265 Controller Twee Nguyen: [email protected] STATE VP: Steve Kashkett USAID AFSA OFFICE: Accounting Assistant Jon Reed: [email protected] (202) 712-1941; Fax: (202) 216-3710 Labor Management USAID VP: Francisco Zamora General Counsel Sharon Papp: [email protected] FCS AFSA OFFICE: FAS VP: Vacant Labor Management Attorney Zlatana Badrich: [email protected] (202) 482-9088; Fax: (202) 482-9087 Labor Management Specialist James Yorke: [email protected] FCS VP: Donald Businger Grievance Attorneys Neera Parikh: [email protected] and Holly Rich: [email protected] AFSA WEB SITE: www.afsa.org RETIREE VP: Robert W. Farrand Office Manager Christine Warren: [email protected] FSJ: [email protected] USAID Senior Labor Management Adviser Douglas Broome: [email protected] SECRETARY: F.A. “Tex” Harris PRESIDENT: [email protected] USAID Office Manager Asgeir Sigfusson: [email protected] TREASURER: Andrew Winter STATE VP: [email protected] Member Services STATE REPS: Oscar DeSoto, David Firestein, RETIREE VP: [email protected] Director Janet Hedrick: [email protected] USAID VP: [email protected] Representative Cory Nishi: [email protected] Michael Guest, Jim McRea, Nick Pietrowicz, FCS VP: [email protected] Web-site & Database Associate: vacant Margaret Riccardelli, Sandy Robinson, Administrative Assistant Ana Lopez: [email protected] Daphne Titus, Andrea Tomaszewicz AFSA News Outreach Programs Editor Shawn Dorman: [email protected] Retiree Liaison Bonnie Brown: [email protected] USAID REP: Michael Henning (202) 338-4045 x 503; Fax: (202) 338-8244 Director of Communications Thomas Switzer: [email protected] FCS REP: Stephen Anderson Congressional Affairs Director Ian Houston: [email protected] On the Web: www.afsa.org/news Executive Assistant to the President Austin Tracy: [email protected] FAS REP: Vacant Scholarship Director Lori Dec: [email protected] IBB REP: Al Pessin How to Contact Us: to Contact How Professional Issues Coordinator Barbara Berger: [email protected] RETIREE REPS: Harry Geisel, David Passage, Elderhostel Coordinator Janice Bay: [email protected] Herman Cohen, Howard Jeter

64 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 A F V.P. VOICE: STATE BY STEVE KASHKETT S A Mea Culpa N E s I start my second term of office as AFSA VP for State, I AFSA intervened with HR to find ways W have to make a confession: I am guilty of being a lazy com- to fix the system and to expedite orders S Amunicator. Over the past two years, I haven’t done a very for individual members who had come good job keeping our membership informed, on a regular basis, to us for help. of the incredibly broad range of issues and concerns that AFSA Foreign Service Exam: AFSA worked has addressed with department management — or of the many closely with the department on the pro- battles we have fought behind the scenes on behalf of our mem- posed changes to the FS exam and entry bers. process. We participated at every stage Previous VPs have sent out frequent, multiple-subject status of the discussions and helped ensure that reports via the AFSAnet listserv and ALDAC cables on a month- the new procedures will remain fair and objective, bring in high- ly basis. I only produced a few such messages, dealing with spe- caliber individuals, and protect the Service from bias and polit- cific, major matters under negotiation between ical manipulation. AFSA and State. War-Zone Tax Breaks: Numerous mem- As a result, our members know that AFSA I will endeavor to do a better bers serving in Iraq and Afghanistan have asked has been front and center in negotiating with job communicating to our us to seek a legislative change that would enable the director general over the big proposals that Foreign Service employees serving in active affect the entire State Department Foreign Service State membership what combat areas to benefit from the same kinds contingent (broad changes to assignment rules, AFSA is doing for you! of federal income tax exemptions that military special incentives for Iraq volunteers, etc.). But members enjoy. AFSA is aggressively lobby- few are aware of the hundreds of other con- ing Congress for such a change. tentious issues that AFSA has championed and continues to fight Family Member Employment: AFSA has interceded with for every day. Washington and post management on behalf of numerous indi- In this second term, I plan to rectify this error, starting with vidual members whose family members have run into obstacles this column. Here are just a few examples of important — but in trying to obtain meaningful work at overseas posts, often due slightly lower-visibility — issues that AFSA has raised over the to bureaucratic glitches or inertia. past year: Members of Household: AFSA continues to press the DG and Incentives for Unaccompanied Assignments: Recognizing that the Secretary of State to develop more forward-leaning policies one of the greatest challenges facing the Foreign Service is the for dealing with the needs of the hundreds of Foreign Service unprecedented growth in unaccompanied positions (currently employees who are accompanied at overseas posts by their unmar- nearly 800, most of which must be filled every summer), AFSA ried partners or other MOHs, who are often disadvantaged by continues to propose to the department various creative incen- restrictive rules concerning travel costs, access to post services and tives that will encourage volunteers to bid on those jobs and stave facilities, visas, work permits, etc. off the threat of “directed” assignments. One such incentive, which State Residency: A remarkable number of our members find we continue to press for at every opportunity, is a doubling of they are denied residency status in their home states when they the woefully inadequate Separate Maintenance Allowance. want to enroll their kids in state universities, merely because they SLRP: The department’s decision to limit eligibility for the have served overseas for lengthy periods and have not been phys- Student Loan Repayment Program to those serving at posts with ically present in the state. AFSA has successfully intervened on a 20-percent or higher differential, and to apply this threshold many occasions this past year to get these unfair decisions reversed. retroactively, led to an outcry among members who had chosen This very partial list covers just a handful of the diverse issues to bid on 15-percent posts because they would be eligible for the AFSA is addressing, beyond our “normal” daily work in support SLRP. AFSA protested this move and is seeking a change in pol- of fairness in assignments and promotions, family-friendliness, icy. accountability on security and medical clearance investigations, Personnel Techs: The breakdown in the Human Resources and preservation of a Foreign Service whose members play a mean- system for issuing travel orders last summer led to a backlog and ingful role in the formulation and implementation of U.S. for- a serious lack of responsiveness by personnel technicians, result- eign policy. ing in many members being forced to leave post without orders I will endeavor to do a better job communicating to our State and able to get travel advances only by signing promissory notes. membership what AFSA is doing for you!

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 65 A 2007 AFSA AWARD WINNERS STORIES BY SHAWN DORMAN F S AWARD FOR LIFETIME CONTRIBUTIONS TO AMERICAN DIPLOMACY A Ambassador Joan M. Clark N n recognition of her important contributions to the career Foreign Service, both during her E 44-year Foreign Service career and in retirement, former Secretary of State Lawrence Eagleburger W Ipresented the 2007 AFSA Award for Lifetime Contributions to American Diplomacy to S Ambassador Joan M. Clark at the June 28 AFSA Awards Ceremony. Her many accomplish- ments as a Foreign Service officer, as well as her involvement with the Foreign Service Protective Association and the Senior Living Foundation, have all been dedicated to improvement of the professionalism and efficiency of the Service, as well as to the health and welfare of FS retirees. Her leadership in the establishment of the Senior Living Foundation in 1988 helped create an organization that provides invaluable support to the retired Foreign Service community and has helped preserve its members’ dignity and well-being.

MIKKELA THOMPSON Amb. Clark served as director general of the Foreign Service, assistant secretary of the Bureau Ambassador Joan Clark with Secretary Eagleburger of Consular Affairs and ambassador to Malta. Other overseas posts included Berlin, London, at the June awards ceremony. Belgrade and Luxembourg. (See interview with Amb. Clark in the July/August FSJ, page 49.)

Awards Ceremony • Continued from page 63 AFSA. He highlighted the dissent awards, Appreciation: noting that “Speaking out against con- ventional wisdom and offering an alter- Robert Clements, 1918-2007 native and perhaps controversial view on AFSA would like to pay tribute to Robert Clements, who passed away in May at policy or operational issues can be risky. It the age of 89. In 1947, along with cofounder M. Juanita Guess, Clements established can jeopardize one’s career. However, since the first global insurance agency. Clements & Company, now Clements International, 1968, AFSA has firmly believed that it is vital has been providing insurance to Foreign Service families ever since. to honor the constructive and creative dis- Jon Clements, son of Robert Clements and Juanita Guess, is CEO of Clements senters who are willing to work within the International. At the AFSA system to bring about change. We believe Awards Ceremony, he pre- that American foreign policy can only ben- sented the M. Juanita Guess efit from an open and candid debate of the Award, which was estab- issues among our Foreign Service profes- lished by the family in 1994 sionals.” to recognize a community Giving unusual pre-event media cov- liaison officer who has erage to the AFSA Awards Ceremony, AP demonstrated outstanding ran a story by Matthew Lee the day before dedication, energy and imag- the event called “Dissenting U.S. Diplomats ination in assisting the fami- Honored.” This story, which focused on lies of Americans serving at an Dissent Award winners Michael Zorick and overseas post. Clements Ron Capps, was picked up by numerous noted that his father believed media outlets. A June 30 story on NPR’s that the community liaison “All Things Considered” began: “The officer had the most impor- Bush administration doesn’t have a repu- tant job in the embassy, tation for listening to dissenting views. But because “you need to learn that hasn’t stopped some State Depart- how to live in a country first” ment officials from sending home cables in order to be able to work critical of U.S. policy. It’s part of the State there. AFSA is grateful for the Department’s culture, a culture the depart- support that Robert Clements ment’s professional association tries to fos- gave to the Foreign Service ter by giving out annual awards to those community and that lives on who speak up.” Kelemen interviewed both in his memory. Continued on page 71

66 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 2007 AFSA CONSTRUCTIVE DISSENT AWARD WINNERS A F S A William R. Rivkin Award N FOR A MID-LEVEL FOREIGN SERVICE OFFICER E W Michael Zorick S

ichael Zorick showed tremen- Mdous courage by challenging the implemen- tation of U.S. counter- terrorism policy in Somalia, warning against what he viewed as an incorrect approach and offering an alternative. His advice was not followed, and subsequent events have proven that his analysis was correct. For his willingness to stand up for what he believed was right, From left: Zorick on a hiking trip to Hell’s Zorick was awarded the Rivkin Dissent Award. National Park, Kenya, in 2006; Zorick (center) From August 2004 to April 2006 while based at Embassy with members of the International Referen- Nairobi, Zorick served as the only State Department “Somalia- dum Election Observer Team and Kenyan poll watcher” overseas. His role was to monitor the political-economic workers at the Deley Primary School in north- situation there, and promote efforts to establish a stable govern- east Kenya; Zorick in Hargeisa, self-declared ment that could function as a partner in confronting U.S. con- Republic of Somaliland. cerns regarding terrorism in the Horn of Africa. Despite the fact that Somalia was a country without a functioning government, Yahya Ali, the Foreign Service National employee who worked with no security and no U.S. presence, Zorick built communica- with Zorick on Somalia issues, and who had also helped prior tion networks within the Somali communities in both Somalia Somalia-watchers. At the June AFSA Awards Ceremony, Zorick and Kenya, developing a unique vantage point. paid tribute to the man “who was briefly my teacher and my When Zorick learned of other U.S. counterterrorism efforts friend, a peace activist murdered in Mogadishu in July 2005. A that were in direct conflict with publicly enunciated objectives, he Somali who paid the ultimate price, in no small part for being attempted to argue through regular channels that these actions unable to bring the United States to understand his people.” would, in the long term, undermine U.S. interests and prove The dissent award, Zorick tells us, represents “a public pat on harmful to future U.S. involvement. However, Zorick’s argu- the back from AFSA and, by proxy, from one’s peers and col- ments for alternative approaches, based on his long-time contacts leagues, for a desire to protect the interests of the United States of within the Somali community and his knowledge of the complex America; a reward for exhibiting the temerity to rock the boat, and clan and faction relationships, went unheeded. Finally, he sent a recognition of the hidden costs of dissent. [It] is an honor indeed. cable through the Dissent Channel as a means of communicating And perhaps some vindication, however small, of the price paid.” his concerns to the appropriate policy levels within the State Michael Zorick joined the Foreign Service in 1989, and has Department. served in Toronto, Kigali, Budapest, Paris, Nairobi, N’Djamena One of the two separate nominations for Zorick noted that and Washington. His career has been largely devoted to questions while he maintained a steadfast focus on the need for a long-term of economic development in Africa and the transition economies vision and strategy for Somalia, much of the embassy was con- of Central and Eastern Europe. He is currently serving as chair of sumed with keeping the active al-Qaida threat at bay. Despite his the Sub-Saharan Africa Area Studies program at the National disagreements with current U.S. policy, his increasing isolation Foreign Affairs Training Center. Prior to joining the Foreign within the embassy community and threats from Somali leaders Service, he served as a Peace Corps Volunteer in Banfora/ because of his views, Zorick did not speak out publicly about the Ouagadougou and then as a contractor for USAID in Conakry. U.S. actions in Somalia even when his warnings and predictions He has an M.A. from the Fletcher School of Law and Diplomacy, were borne out by subsequent events. He worked within the sys- Tufts University, and a B.A. from the University of California, tem to urge a different course of action. San Diego. Zorick dedicated his award to the memory of Abdulkhadir

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 67 A 2007 AFSA CONSTRUCTIVE DISSENT AWARD WINNERS F S A N William R. Rivkin Award E FOR A MID-LEVEL FOREIGN SERVICE OFFICER W S Ronald Capps

or his courageous stand challenging the U.S. position on Capps did not simply criticize U.S. government policy; he peacekeeping in Darfur, Ronald Capps was selected for the proposed an alternative. He suggested a more muscular Western FRivkin Dissent Award. On the third anniversary of the out- peacekeeping coalition, led by the U.S., to stabilize the security sit- break of the armed rebellion against the Sudanese government in uation. His message was titled “Who Will Apologize?” — a refer- Darfur, Capps transmitted a cable that, in the words of the ence to President Clinton’s speech in Kigali four years after the embassy official who nominated him, “was as prescient as it was Rwandan genocide, in which he apologized to the Rwandan peo- controversial.” ple for the failures of American policy toward that horror. As Capps was serving as deputy chief of the political-economic Capps explains it, “President Clinton said, ‘Never again must we section of Embassy Khartoum at the time. He was in direct con- be shy in the face of evidence.’ I believe that in Darfur the evi- tact with rebel groups in the dence is clear. President Bush has said so, and two Secretaries of area and he understood the State have said so. I don’t want another American president to complex political environ- have to repeat Pres. Clinton’s performance. But primarily, I want ment. He warned that nei- to see the killing in Darfur stopped, and I think America has a ther the Darfur Peace duty to take action to stop it.” Agreement nor the African The insightful analysis of a complex political environment did Union force would stop the and should give pause to policymakers, the nomination states, genocide in Darfur, despite adding that the work done by Capps “remains as relevant and strenuous support for both deserving of wide readership now as it did then. By challenging among U.S. officials at the many of the U.S. highest levels. Correctly, assumptions about Capps predicted that the rebel the Darfur crisis, groups and armed Arab mili- Capps’ thoughtful tias would resist the disarma- argument can still ment provisions of any peace help the U.S. refine agreement and that the con- its policy and flict would spread across the Ron Capps, at right, with former achieve its humani- Sudanese border to Chad. AFSA President John Limbert in Iraq. tarian goals in Darfur.” Capps tells AFSA News Capps riding in the back of a Sudan Liberation that he’s not sorry Army vehicle after 10 days of meetings in North he wrote that cable, Darfur. The SLA are taking him to a helicopter just sorry he had to landing zone for extraction by the African Union Mission in Sudan. write it. Ron Capps entered government service in 1983 as an enlisted soldier, and was commissioned as a second lieutenant in the cavalry in 1985. He spent nine years on active duty before joining the Foreign Service in 1994. His Foreign Service assignments have included Yaounde, Montreal, Pristina, Kigali, Ashraf (Iraq), Khartoum and Washington. After the 9/11 attacks, he was recalled to active duty in the military and on three mobilizations has served in Ron Capps greeting commanders of the Sudan Liberation Army in Haskanita, South Darfur, in November 2005. Capps is shaking hands with Afghanistan, Darfur and N’Djamena. He is currently serving in Mini Minawi, who signed the Darfur Peace Agreement in 2006 and joined the Office of African Analysis within the Bureau of Intelligence the government of Sudan. At left is Mariane Nolte of the U.N. and Research.

68 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 A 2007 AFSA OUTSTANDING PERFORMANCE AWARD WINNERS F S M. Juanita Guess Award Avis Bohlen Award A FOR A COMMUNITY LIAISON OFFICER FOR A FOREIGN SERVICE FAMILY MEMBER N Linda Lockwood Judi Marquardt E inda Lockwood was selected as winner of the or her exceptional contributions to W M. Juanita Guess Award for a community liai- the advancement of U.S. interests S L son officer for her work at one of Africa’s Fin Cameroon, which have made a largest posts, Embassy Pretoria. difference in the lives of both 1 Lockwood’s efforts as co-CLO during the last 3 /2 Cameroonians and Americans, Judi years have had a far-reaching impact throughout the Marquardt was selected for the Avis embassy community. Post morale has been greatly Bohlen Award. She used her time, enhanced through her outstanding leadership, dedica- energy and creativity to improve the tion, initiative and imagination in assisting American U.S. mission as a place to work for families at post, as well as her excellent listening skills both American and Foreign Service and “ironclad discretion,” her nomination states. Co- National staff. Judi Marquardt visiting with the Lamido CLO Lucy Neher, who accepted the award on her Marquardt focused her volunteer of the Mbororo people of Sabga, North- behalf at the ceremony, called Lockwood a “CLO to work on women’s and children’s rights west Province, Cameroon, in May 2007. the world,” commenting on her “uncanny ability to and literacy. She organized the women anticipate people’s needs, sometimes before they even of the embassy to participate in the know” what they need. annual Women’s Day Parade for the first time. Formerly, only Cameroonians Concern for post morale in connection with the had participated in this important event, which attracts 40,000 women from high rate of crime in Pretoria led Lockwood to a across the country. Other embassies followed her lead and began to take part in cooperative project with the regional security office to the event, making it a more international demonstration of support for women’s design and implement a carjacking awareness course rights. for both employees and family members. She also In her many speeches to women’s groups and schools throughout the coun- organized town meetings, together with the RSO and try, Marquardt stressed the importance of education, the empowerment of regional psychiatrist, to discuss crime and safety issues. women and the need to nurture the nation’s children as the future of the country. Lockwood’s concern for the health and welfare of She devoted much of her time and effort the embassy community also led to collaboration with to working with groups assisting the Health Unit to organize a successful Breast Cancer HIV/AIDS victims and orphaned chil- Awareness and Cholesterol Screening Health Fair. dren, and was the featured speaker at a When the vendor for the embassy cafeteria left, she women’s HIV/AIDS conference attend- chaired a cafeteria committee and was instrumental in ed by over 400 people. She developed a finding a new vendor. While that search continued, program in which students of the she organized a team of volunteer cooks to serve American school made books on tape lunch and used the proceeds to benefit a local charity. that were then given to Cameroonian She has also helped numerous families of children schools. She helped set up and spon- with special needs, enhancing the reputation of sored a fashion show and handicraft fair Embassy Pretoria as a post with good special needs for the benefit of former victims of child services. Marquardt participating in the 2007 labor, who produced all the items for Outside the embassy, Lockwood also made a dif- International Women’s Day march in sale. This resulted in wide, positive ference by working with charitable organizations. She Garoua, North Province, Cameroon. media coverage that gave needed atten- has served as a member of the Hearts and Hands tion to this issue. organization since it was founded several years ago by Marquardt’s genuine concern for the Cameroonian people and their culture members of the embassy community. For two years, and her enthusiasm to use her position as the ambassador’s wife to reach out to Lockwood served as its chair, overseeing a major various communities contributed to the building of stronger relations between reorganization, and winning a grant from the J. Kirby the U.S. and Cameroon. Simon Trust to paint the Twilight Children’s Center, a Surprised by the Bohlen Award, Marquardt said, “After 26 years as a Foreign shelter for street boys in Johannesburg. The painting Service spouse, I am particularly encouraged, not just for myself, but for all of the event was a true community effort involving embassy other spouses and family members who give freely of their time and energy to employees and their families. promote a better understanding of the United States abroad. I dedicate this Lockwood has lived overseas for most of the past award to all of them!” 35 years, always finding rewarding and challenging Judi Marquardt has helped represent the U.S. since joining the Foreign Service employment. She served in the Peace Corps in India community in 1981, serving in Brazzaville, Bangkok (twice), Paris, Bonn, and stayed for seven years. With the Foreign Service, Yaounde, Malabo and Washington, D.C. She served in Paris when Avis Bohlen she has served in India, Pakistan, Bangladesh, Kenya, was deputy chief of mission there, making the award even more meaningful. Zimbabwe, Korea, Belgium and South Africa. She She and her husband Niels have raised four daughters. With degrees from was the CLO for Embassies Dhaka, Nairobi and Chapel Hill and Thunderbird, Marquardt has reinvented herself repeatedly in Harare. Lockwood and her husband have two grown response to changing opportunities and circumstances, creating a varied and ful- children and one grandchild. She and her husband filling career. This summer, she and her family moved to Madagascar, where her are getting ready for a post-Foreign Service chapter of husband is the new ambassador. She will, no doubt, continue to make a differ- life in Florida beginning in August 2008. ence, both inside and outside the U.S. mission.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 69 A 2007 AFSA OUTSTANDING PERFORMANCE AWARD WINNERS F S A Delavan Award Special Awards of FOR A FOREIGN SERVICE OFFICE MANAGEMENT SPECIALIST N Appreciation E Margaret Weber Baker Faye Barnes W argaret Weber Baker has S made lasting contribu- Robert Wozniak Mtions to the Embassy FSA presented two Special Awards of Appreciation at the Tel Aviv community, and always June ceremony. One went to Faye Barnes, who is retiring seeks out opportunities to Afollowing an assignment as the customer service coordina- improve the mission beyond her tor in the Office of Retirement. The other award recognized FS responsibilities as the office retiree Robert Wozniak for his eight years as chairman of the management specialist in the Baker (standing, center) with association’s Election Committee. economic section. For her colleagues from Embassy Faye Barnes has played an important role in the improvement efforts to enhance the embassy of retiree services in the State Department’s Office of Retirement. community experience, give Tel Aviv’s economic section, Christmas, 2006. Her concern and care in responding voice to the concerns of those quickly to retiree problems and requests often overlooked and improve has been much appreciated by the the workplace, Baker was select- retiree community. AFSA has consis- ed as winner of the 2007 Delavan Award. tently called on her to assist our mem- Embassy Tel Aviv is an extremely busy place, where attention bers and has worked jointly with her on from Washington and visits by the Secretary contribute to a fast- many retiree-related issues. paced work environment. Baker helped foster a sense of communi- As she did during her tenure as ty among embassy employees. director of the Family Liaison Office, Among her many contributions to post morale was a successful Barnes set the standard for positive atti- effort to save the embassy cafeteria when it was going to be shut tude and responsiveness, creative prob- Faye Barnes down by the Health Unit. She organized a committee, sent out a lem solving, and willingness to be an customer survey and used the results to prioritize the necessary advocate for those issues affecting improvements. She succeeded in revitalizing the cafeteria, which is Foreign Service employees and their now a vibrant meeting place for all embassy employees. families. She will be greatly missed by Baker was the driving force behind the organization of an OMS AFSA and, in particular, the retirees group that represented their concerns to the front office, leading to whom she has served so well. increased opportunities for work on the Secretary’s visits, training Barnes told AFSA News that she was and temporary-duty opportunities. Her leadership helped the surprised and touched by the award. group break through barriers that had prevented some of her col- Accepting her award, she said she hopes leagues from voicing their opinions, and led to greater appreciation that the department will continue to in the mission for the work of the 10 OMSs at post. fund retirement services and staff the During an R&R break in the U.S., Baker took a computer office with people who care. Robert Wozniak course at FSI. Upon return to post, she volunteered her knowledge Faye Barnes, who is from Canada, of a new office system whose implementation had been delayed due spent 20 years abroad as a Foreign Service spouse, serving in to a lack of training resources, and was the catalyst for implement- Caracas, Madrid, Lima, Bonn, Mexico City, London and ing the system throughout the embassy. Washington, D.C. She is married to Richard L. Barnes, an FAS The nomination for Baker describes her as “the cheerleader, retiree. organizer and self-starter that every community needs in order to Robert J. Wozniak served for the past eight years as chairman of cement together its disparate parts. At Embassy Tel Aviv, she was the AFSA Election Committee and has devoted countless hours to always on the lookout for ways to improve morale and get people its important work. His steady leadership and dedication to the involved.” goal of promoting the smooth transition of AFSA’s Governing Baker joined the Board every two years has contributed significantly to the successful Foreign Service in running of the organization. He has generously contributed his 1999 after 14 years as time and talents to ensure that the election process was conducted a civil servant with in a fair and transparent manner. AFSA is deeply grateful for his the Defense commitment and dedication to the association. Department. In At the podium, Wozniak expressed appreciation for the AFSA addition to Tel Aviv, staff, and said that he shares the award with them. Commenting she has served in further he tells AFSA News. “It was the AFSA staff who carried the Moscow, Pristina and load, pointed me in correct directions. One of the best aspects of Washington, D.C. the experience for me was working with some truly fine people on the professional staff and learning how very dependent the Governing Board is on their expertise and dedicated service.” Baker on the roof terrace of Embassy Tel Aviv, Wozniak joined the Foreign Service, and AFSA, in 1963, and enjoyed a 34-year career with USIA. He took on the election com- with the city of Jaffa and the Mediterranean mittee position as a way to give something back to AFSA. Sea in the background.

70 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 A F Awards Ceremony • Continued from page 66 Amb. Clark — whom he referred to as the chairman of the AFSA Election S of the dissent winners. “Joanie” — has always been a strong leader, Committee. A Amb. Holmes told the assembled noting that her integrity, discretion, Among performance award-winners, guests that there were six strong nomina- patience and wisdom are legendary. He Judi Marquardt of Embassy Yaounde won tions for the William R. Rivkin Award for described her contributions to diplomacy the Avis Bohlen Award for volunteer work N Constructive Dissent by a mid-level officer, and to the enhancement and profession- by a family member. Unable to attend in E and the Rivkin family had generously alism of the career Foreign Service. In par- person, her daughters Kaia and Kelsey W agreed to support the selection of two win- ticular, he praised her work in establishing accepted the award on her behalf from S ners and to award the full $2,500 prize to and leading the Senior Living Foundation, Mary Fisk, the great granddaughter of each. Unfortunately, there were no valid which assists retirees and their spouses, as Averell Harriman. nominations for the other three dissent an illustration of “her deep commitment The M. Juanita Guess Award for a com- awards. to our profession.” munity liaison officer went to Linda The William R. Rivkin Award Lockwood of Embassy Pretoria, was established by Rivkin’s widow, who was also unable to attend the Enid Long, in 1967. Following her ceremony. Jon Clements present-

death several years ago, the four MIKKELA THOMPSON ed the award to co-CLO Lucy Rivkin children agreed to contin- Neher, who accepted the award on ue the family’s support for the behalf of Lockwood. Runner-up award. The two Rivkin awards Jennifer Mauldin of Consulate were presented by Robert Rivkin, General Chennai was asked to stand the son of Amb. Rivkin. Ronald A full house for the June Awards Ceremony. for an acknowledgement of her Capps was honored for challeng- own service. ing the assumptions behind the U.S.-sup- The Delavan Award to a Foreign ported peace plan for Darfur in 2006, while Service office management specialist was serving in Sudan. Michael Zorick was hon- MIKKELA THOMPSON awarded to Margaret Baker of Embassy Tel ored for his dissent on U.S. counterter- Aviv, who was also unable to attend the cer- rorism efforts in Somalia while serving in emony. Amb. William Harrop presented Kenya. (See the profiles of all the award the award to Mariam Abdulle, who accept- winners beginning on page 66.) ed on Baker’s behalf. Delavan runner-up Former Secretary of State Lawrence Robyn Davis of Embassy Guatemala City Eagleburger presented the Lifetime Contri- was asked to stand to be acknowledged. Rivkin Dissent Award Winner Ronald Capps (right) butions to American Diplomacy Award to As the ceremony drew to a close, Sec. accepting his award from Robert Rivkin, son of Ambassador Joan M. Clark, for her out- Amb. William R. Rivkin. Eagleburger returned to the podium to standing service during 44 years in the comment on dissent. “The fact of the mat- Foreign Service and in retirement, where ter,” he said, “[is that] this Foreign Service she continued to be a strong advocate for Amb. Holmes presented two Special of ours needs more dissenters, not fewer. the Foreign Service community. Eagle- Awards of Appreciation, one to Faye Barnes And it needs to encourage them, not dis- burger, who clearly knows Amb. Clark well, for her work as customer service coordi- courage them. And if there were more of said that he couldn’t think of anyone who nator in the Office of Retirement, and one that, maybe we wouldn’t be in the mess deserves the award more. He said that to Robert Wozniak, for his eight years as we’re in right now.”

Fair Share• Continued from page 63 year limit and to stop giving any special 2,000 responses and revealed a wide range fathering” for employees who had made waiver consideration to employees whose of differing priorities within our mem- careful, good-faith bidding decisions motive for wanting to stay in Washington bership on these issues. While most clear- based on existing rules. Many also is to allow a teenage son or daughter to fin- ly believe, as do we, that the Foreign expressed reservations about the increas- ish his/her senior year in high school; Service must play a leading role in ingly coercive nature of the assignment 2) To apply the new 15-percent fair- responding to the many challenges fac- rules, the loss of control over career paths, share threshold (which AFSA agreed to last ing our country overseas and that Foreign and the ever-more-daunting obstacles to year) retroactively. Service assignment rules should reflect maintaining a family in the Foreign AFSA conducted an electronic opin- these new realities, there was widespread Service as these rules have evolved. ion poll of active-duty State members in concern about the unfairness of applying The survey results highlighted a grow- March/April, which generated nearly new rules retroactively, with no “grand- Continued on page 73

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 71 A F Governing Board • Continued from page 63 S V.P. VOICE: FCS BY DON BUSINGER A been “a delight” to find AFSA staffed with dedicated employees with years of expe- N rience and an institutional memory rare in MOU Signed on TIC and the ever-rotating Foreign Service. E Incoming President Naland thanked W Language-Incentive Pay the outgoing board and welcomed the new S board, which includes several people from the 2005-2007 board who will con- tinue to serve. t took about 18 months to get here, but I can now let you The new board wasted no time getting know that AFSA and Director General Israel Hernandez have signed a memo- Irandum of understanding resolving two issues that were part of the fall 2005 midterm The new board wasted no time proposals from AFSA. The first proposal concerned negotiating new and clearer rules for the time-in-class policy for mandatory retirement (as detailed on the OurPlace getting to work. A meeting with Intranet). Sections 7 and 8 have been revised by management. Sec. Rice was scheduled for July The previous policy — especially as it applied to FS-1s who had opened their win- dow for promotion into the Senior Foreign Service and thereby created a 10-year 26. On July 21, during its first TIC “limit” — was confusing and unclear with respect to how this TIC limit relat- week in office, the board held ed to the single-class TIC and the so-called TIS (total time in Service). Human Resources was interpreting the Section 8 “exceptions” to TIC time as applying only to the TIC an offsite retreat. and not to the TIC limit. The MOU and new policy provide that the exceptions will apply to the TIC, the TIC limit and the TIS simultaneously. It also removes certain to work. A meeting with Secretary Rice was ambiguities concerning TIC exceptions for scheduled for July 26. On July 21, during the AFSA VP and representative. its first week in office, the board held an AFSA continues to believe that Our second proposal concerned a pre- offsite retreat to work on an action agen- this precept requirement does vious policy that in order to be eligible for da based on the Team AFSA slate priori- language-incentive pay, an officer had to ties presented during the election. These not serve the needs of the be tested at FSI, even if that officer had been priorities include: setting the right tone for Service or the needs of our trained at a non-FSI facility such as dialogue with management; listening and Diplomatic Language Services. Further, reporting to members; securing overseas officers. But we also believe the policy discriminated between language comparability pay and more resources for that management will not testing for an assignment and testing for diplomacy; improving overseas security; incentive pay: DLS, using the Federal influencing Foreign Service reform initia- revisit this issue without Interagency Language Roundtable Pro- tives; defending the Foreign Service against pressure from the officer corps. ficiency Scale, was allowed to conduct the outside critics; enhancing FS training; testing in connection with an overseas improving living conditions overseas; assignment — but not for incentive pay. defending and expanding retiree benefits; The MOU and new policy allow officers to be tested at DLS if they were trained there expanding diplomatic privileges for spe- or if they were trained at FSI previously, but not if they were recently trained at FSI, cialists; preserving and strengthening in which case they must be tested there. USAID; monitoring conditions of service Our third proposal, which suggested minor changes to the precepts for eligibil- at non-State agencies; improving admin- ity for promotion into the Senior Foreign Service based on positions and skills, was istrative accommodations for Members of never seriously entertained by management. We were promoting the radical notion Household; updating security procedures; that serving as a deputy chief of mission or a consul general, rather than as a senior and assuring fair and equitable standards commercial officer, should satisfy that requirement. The current policy that for pro- for the assignment process. motion to the SFS, an FS-1 has to serve in an SCO assignment in any country — no The new president sent out his first matter how small in budget or personnel — may be pushing officers away from impor- AFSAnet President’s Update on July 19 as tant senior positions at headquarters, positions in the Office of Domestic Operations part of his pledge to keep members well and in large Overseas Investment Office posts as deputy senior commercial officer. informed of AFSA’s advocacy efforts on AFSA continues to believe that this precept requirement does not serve the needs of their behalf. Look for his updates on the the Service or the needs of our officers, but we also believe that management will AFSA Web site at www.afsa.org. not revisit this issue without pressure from the officer corps.

72 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 A F Fair Share • Continued from page 71 Current Realities enough volunteers to fill the hardship and S ing belief that the rules should require every- AFSA believes the agreement represents unaccompanied posts on the 2008 assign- A one to share the burden of hardship ser- a fair compromise that takes into account ment vacancy lists, AFSA proposed during vice and that no one should be exempt, the realities that the Foreign Service is fac- these negotiations a number of creative including senior officers, 7th-floor staffers ing overseas but also addresses the diverse ideas, including: N and well-connected insiders in certain concerns of our membership. It does short- 1) Permit those facing separation from E bureaus. en the number of years a Foreign Service the Service due to time-in-class/time- W member can serve domestically, but it in-Service expiration to postpone retire- S Outline of the Compromise “grandfathers” many people already serv- ment, if they are willing to take assignments After taking account of the feedback ing domestically and expands the waiver at designated hard-to-fill overseas posts; from AFSA’s worldwide membership, the criteria for those with compelling person- 2) Use existing waiver authority to make Governing Board agreed to the following al circumstances. It does shorten the time it easier for WAE annuitants to take posi- compromise: before fair-share bidding is required for tions at unaccompanied posts; 1) AFSA agreed to the DG’s proposal some employees who have served at 5- and 3) Institute an option, accompanied by to change the six-year limit to a five-year 10-percent posts, but it will not unfairly strong, tangible benefits as an incentive, for limit (as it was until the mid-1990s), but change anyone’s bidding status immedi- people going to unaccompanied posts to only on the following conditions: ately. (AFSA had also tried, albeit unsuc- sign up for two years. Options could in- a. Any employee who began a series of cessfully, to get the department to agree to clude such things as extending the “guar- domestic assignments in 2004 or earlier is an exception for those at posts with a 10- anteed top-five onward assignment” that “grandfathered;” percent or lower differential who had been is now available to Iraq Provincial Recon- b. A special committee within HR/CDA hurt by last year’s ban on extensions.) struction Team volunteers; will consider waiver requests under the new It is important to remember that, if no 4) Order an immediate doubling of the five-year rule; compromise had been reached, the depart- Separate Maintenance Allowance for those c. The criteria spelled out in the SOP ment almost certainly would have brought serving at involuntary unaccompanied for the waiver committee include the fol- our disagreement over the proposed posts, as well as a significant “signing bonus” lowing compassionate reasons that may assignment rule changes to the Foreign (perhaps $20,000) for anyone willing to justify a waiver: medical issues, having a Service Impasse Disputes Panel. The rul- volunteer for those positions; and son or daughter entering the final year of ings of this panel, which is part of the 5) Review the long-term staffing pattern high school, providing care to an elderly Federal Labor Relations Authority, are for Embassy Baghdad and the Iraq PRTs parent and dealing with child-custody unpredictable and in recent years have tend- with a view toward “rightsizing” those posts. issues; and ed to favor management. There is a real AFSA is urging the Secretary and the d. The waiver criteria will include deputy possibility that the panel could have director general to give serious considera- assistant secretaries but not people serving adopted the department’s original proposal tion to these and other vehicles for in staff positions or tandem spouses of or a solution of its own, which could have addressing the short-term requirements of DASes. been far worse than the compromise out- the Foreign Service without fundamental- 2) AFSA agreed on a gradual phase- lined above. ly altering our volunteer assignment system in of the new 15-percent fair-share and without placing greater strains on the threshold for those who accepted assign- Additional AFSA Proposals ability of FS members to pursue their ments at 5- or 10-percent posts in recent Recognizing that the department’s careers while managing the needs of their years, as shown in the following chart: immediate imperative is to generate families.

Year Departed from Year Employee Transfer Cycle/ AFSANEWSBRIEFS 5- or 10-percent Post Must Start Bidding Arrival at Post ~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~~ USAID SFS Promotions Confirmed 2010 2013 2014 AFSA/USAID is pleased to announce that the USAID Senior Foreign 2009 2012 2013 2008 2012 2013 Service officers identified for promotion in September 2006 were finally 2007 2012 2013 confirmed by the Senate and attested by President Bush in June. For 2006 2011 2012 months, AFSA urged USAID management to move the list forward. The 2005 2010 2011 recent confirmation successfully concludes a sad saga that was completely 2004 2009 2010 2003 2009 2010 avoidable and that created unnecessary problems for a significant number 2002 2008 2009 of USAID officers. AFSA/USAID believes that the problem will not recur during the current promotion cycle.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 73 A F S 2007 FOREIGN SERVICE YOUTH AWARDS CEREMONY A Honoring the Youngest Diplomats N BY MELANIE NEWHOUSE, FOREIGN SERVICE YOUTH FOUNDATION EXECUTIVE DIRECTOR E W S n July 10, the Foreign Service The high school essay contest FSYF President Blanca Ruebensaal Youth Awards Ceremony hon- presented awards for FSYF’s Young Oored America’s youngest ambas- required students to analyze Diplomat’s Essay Contest for high school sadors in the Department of State’s and explain how the members and middle school students. Prize Benjamin Franklin Diplomatic Reception money was donated by Diplomatic Auto Room. Some of the nation’s highest rank- of the Foreign Service promote Sales. These awards honor excellence in ing diplomats participated in the cere- the United States’ national written expression among Foreign Service mony, including Deputy Secretary of State youth. The high school essay contest John Negroponte, Under Secretary for interests by participating in required students to analyze and explain Public Diplomacy and Public Affairs the resolution of today’s major how the members of the Foreign Service Karen Hughes, outgoing Director General promote the United States’ national George M. Staples and Deputy Assistant international issues. interests by participating in the resolution Secretary Teddy Taylor. The annual cer- of today’s major international issues. emony is a joint endeavor of the Foreign Hana Passan, posted with her family Service Youth Foundation and the State in Lusaka, was awarded first place for her Department Family Liaison Office. essay on the role of the Provincial Recon- FSYF’s prestigious Clements Foreign increase awareness of the strife in wartorn struction Team program in Iraq. Iraq Service Youth Award for Community Sudan and the ongoing challenges facing issues are particularly close to Hana’s heart Service was presented by Jon Clements, the Sudanese refugees in Egypt. Cle- because her father is being posted there. president of Clements International ments International Insurance donated Charles Brands, living in Santo Domingo, Insurance. This award recognizes Foreign $3,000 U.S. government savings bonds to was awarded second place for his dis- Service teenagers who have shown out- the first-place winners. Forbes Slater, age cussion of U.S. national interests from an standing leadership in community service 14, son of Charles and Elizabeth Slater, post- economic, security and human rights per- or in service to their peers while facing the ed to Bangkok, and Ameera Keval, age 17, spective. Nicholas Marrano, living in challenges of an internationally mobile daughter of Mubina and Azad Keval, post- Madrid, was the middle school winner for lifestyle. ed to Amman, received the Highly his essay on the qualities he sees as essen- This year’s award winners demon- Commendable Award. tial in a person representing the United strated the power of the individual to Ambassador Ruth A. Davis, who is States on the world stage. improve the lives of those less fortunate. senior advisor to the assistant secretary for Last year, the Department of State First place went to Mark Phillips, age 17, African affairs as well as an FSYF board began awarding medals and certificates to son of Susan and Timothy Phillips, member, presented the Kid Video children whose parents were serving in posted in Washington, D.C. He is the Awards. The contest, which is sponsored high-risk, unaccompanied posts to president and founder of the Red Nose by FSI’s Transition Center and FSYF, hon- acknowledge the sacrifice made by the Club, a community service club in ors Foreign Service youth between the entire family when a Foreign Service Scottsdale, Ariz., which conducts projects ages of 10 and 18 for their videos depict- member volunteers for an unaccompa- and sponsors fundraisers to assist children ing life at post for young people. nied posting. For the first time, these chil- with disabilities and serious illnesses. Oakwood Worldwide Corporate Housing dren were recognized at the awards cer- Mark’s service projects also raised aware- generously donated prize money. The emony. Amb. Negroponte called out the ness of global issues. first-place award recipient was Megan names of 34 children who were able to Also winning first place was Kate Potts for her video of life in Frankfurt. attend the ceremony. Approximately 365 Miller, age 17, daughter of Roberta and Second place went to Nathan Lewis for children have received these medals to Lloyd Miller, posted to Cairo. She spent Rabat, and Erik Thackston for Rio de date. hours creating gourmet desserts to raise Janeiro. The “most enthusiastic” category For more information about the money to pay tuition for Sudanese pre- was won by Skyler and Haley Hodell, for Foreign Service Youth Foundation awards school refugees in need and working to their Hong Kong video. program, please visit www.fsyf.org.

74 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 A F S AFSANEWSBRIEFS A N E W New AFSA Scholarships Established S In June, Dorothy Cameron established two scholarships under AFSA’s Academic Merit Program in memory of her late husband, Turner C. Cameron Jr. In August, she established a need-based financial aid scholarship. The first winners will be selected for the 2008 scholarship program. Cameron entered the Foreign Service in 1942. During his career, he was assigned to Paris,

Belgrade, Hanoi, Saigon, Seoul, Colombo, Stockholm and Washington, D.C. He also served as JOSH diplomat-in-residence at the University of South Carolina. Mrs. Cameron tells AFSA that her hus- band’s interests included art, music and cooking — “the more complicated the recipe the better, because he said it cleared his mind of work.” He passed away in 1971 in Montgomery, Ala., BOOKFAIR where Mrs. Cameron still lives. Opening Oct. 12 Another scholarship, honoring the memory of Thomas G. Weston, who passed away in April 2007, has been established by his family and friends. It is a $1,500 financial aid scholarship Opening day for the 47th annual that will be awarded for the 2007-2008 school year to a Foreign Service child pursuing an BOOKFAIR of the Associates of the undergraduate college degree. Ambassador Weston was a career FSO who joined the Foreign American Foreign Service Worldwide is Service in 1969. His overseas postings included Kinshasa, Bonn, Bremen, Ottawa and Nicosia. Friday, Oct. 12, from 2 p.m. to 5 p.m. After retiring, he was a distinguished visiting lecturer in the School of Foreign Service at for employees, spouses and escorted Georgetown University. For more information on the guests. The event takes place in the AFSA Scholarship Program or on Exhibit Hall of the Harry S. Truman how to establish an AFSA Building, and continues from Oct. 15 Academic Merit, Art Merit of through 19, from 11 a.m. to 3 p.m. Financial Aid Scholarship, contact Scholarship Director Lori Dec at During two weekends, Oct. 13-14 and (202) 944-5504 or [email protected]. Oct. 20-21, the sale is open to the gener- al public, from 10 a.m. to 4 p.m. Access is through the C Street entrance. Your License, Without an Request from ConGen Mumbai Expiration Date This year marks 50 years since Consulate VISA, MASTERCARD and personal Washington State has a special driver’s General Mumbai moved into Wankaner checks accepted. Palace, formerly owned by the Maharaja of license for military personnel, with an BOOKFAIR Preview: On Thursday, expiration date of “military.” This type of Wankaner. To celebrate this event, the con- de facto extension would be useful for sulate will present a photo exhibition; audio Oct. 11, from 6 p.m. to 8 p.m., AAFSW members of the Foreign Service as well. and video interviews with American and will hold its second annual “Wine and AFSA member Llywelyn Graeme wrote Indian staff, as well as others associated Cheese” reception in the Exhibit Hall. to his Washington state representative and with the consulate; a historical narrative for senator to ask about such an arrangement publication in the press and on the con- Shopping during this event is welcome for Foreign Service members. As a result, sulate Web site; and possibly a short docu- and encouraged. The cost is $10, State Senator Ken Jacobsen, D-Seattle, mentary. introduced legislation in April to give the payable at the entrance. Proceeds from To help illustrate the rich history of the Foreign Service the same privilege as the consulate, please share your articles, stories, BOOKFAIR are used to support Foreign military. Graeme suggests that all quotations, photos, records or prints that Washington State residents write their Service student scholarships and com- highlight events associated with Consulate state representatives and urge passage of munity projects. AAFSW encourages this bill. They can find their legislators at General Mumbai. Please send anything that www.leg.wa.gov/legislature. The bill is may be appropriate to: [email protected] and you to come and do your holiday shop- SB 6150-2007-08. put “50th Anniversary” as the subject line, ping early. Perhaps members in other states would or mail it to: Elizabeth Kauffman, 6240 Please call (202) 223-5796 with ques- have luck with similar suggestions to state Mumbai Place, Dulles VA 20189-6240. legislators. Your help would be very much appreciated! tions or visit www.aafsw.org.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 75 A F S PROTECT YOURSELF FROM IDENTITY THEFT A Recognizing a Phishing E-mail Before You Get Snagged N BY DEBORAH I. CLARK, VICE PRESIDENT OF MARKETING, STATE DEPARTMENT FEDERAL CREDIT UNION E W n recent months, State Department known company or government agency. delete the message without opening it. S Federal Credit Union members have The e-mail may create a sense of urgency • Be suspicious of any e-mail asking you Ibeen receiving phishing e-mails that, if that lures members into providing this for personal information, requesting answered, can put them at risk for identi- information, which may be used to steal the authentication, or indicating a problem with ty theft. Phishing (pronounced “fishing”) member’s identity. your SDFCU accounts. We will never ask is the practice of deceiving unsuspecting Under no circumstances will SDFCU you to verify your account information members into providing personal financial contact you and ask for your Social through e-mail. information such as account numbers, Security number, personal ID number or • Forward a copy of the e-mail to the passwords, Social Security numbers and any other type of account security code Federal Trade Commission at SPAM other confidential information that can be information. Should you receive any type @UCE.GOV; then delete the e-mail. used to access your checking account or run of communication appearing to be from If you have responded or disclosed your up bills on your credit cards. Phishers may us that solicits this type of information, personal information to a possible fraud- go so far as to create a fake Web page for please contact the credit union immediately ulent e-mail or Web site, file an online com- your “convenience,” or provide a fraudu- to verify it. plaint with the Online Complaint Center lent phone number for you to call. at www.ic3.gov immediately. Also notify Phishing can come in the form of spam Steps to Avoid E-mail Fraud: SDFCU at 1 (800) 296-8882 or (703) 706- e-mails that appear to be from a well- • If you do not recognize the sender, 5000. CLASSIFIEDS

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Martin (SFS, retired). Bill and his firm Fax: (703) 522-5726. Charlottesville Country Properties can help E-mail: [email protected] CLOSE TO NFATC, ARLINGTON, VA. you find a home/farm/estate, raw acreage, Beautiful, expanded, upgraded 4-bedroom, and/or a reputable custom-home builder to VIRGINIA M. TEST, CPA: Tax service spe- 3.5-bath brick colonial 2 blocks from National make your dreams come true in the Virginia cializing in Foreign Service/overseas con- Foreign Affairs Training Center in Arlington. Piedmont. Tel: (434) 996-3726 tractors. Contact info: Tel: (804) 695-2939. Three finished levels. Lower level perfect E-mail: [email protected] Fax: (804) 695-2958. E-mail: [email protected] nanny suite. House: 2,000 square feet, Lot: Web site: www.charlottesvillecountry.com 6,000 square feet, 2-story deck, TV room with ATTORNEY, FORMER FOREIGN SER- 7.1 surround sound, gas fireplace, central VACATION VICE OFFICER: Extensive experience with tax heat/air. Great community (Barcroft) with problems unique to the Foreign Service. school, playgrounds. Minutes to D.C., INTERNATIONAL AMBIANCE, COM- Available for consultation, tax planning and Pentagon. FSBO Details: FORT, at Passages Inn Gettysburg, bed & preparation of returns: www.realestatebyownerinc.com, search by breakfast in nearby historic Gettysburg, Pa. M. Bruce Hirshorn, Boring & Pilger, P.C. MLS Number: AR6399076. Sale: $749,000. Hosts are international communications spe- 307 Maple Ave. W, Suite D, Vienna, VA 22180. May consider short/long–term rental: cialist and radio journalist. On y parle français. Tel: (703) 281-2161. $3,100/month. Tel: (717) 334-7010. Fax: (703) 281-9464. E-mail: [email protected] Web site: www.passagesinngettysburg.com E-mail: [email protected]

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 77 A F S A CLASSIFIEDS N E W TAX & FINANCIAL SERVICES SHOPPING BOOKS S FINANCIAL CONSULTANTS: Kirkpatrick WE CAR SHOP. THE 47TH ANNUAL BOOKFAIR OF THE and Eisen Group, RBC Dain Rauscher, YOU SAVE MONEY & TIME. ASSOCIATES OF THE AMERICAN Washington, D.C. For information, please con- GUARANTEED. FOREIGN SERVICE WORLDWIDE tact team member and retired FSO Stephen * OPENING DAY FRIDAY, OCT. 12 Thompson at (202) 408-4563, or e-mai DELIVERED TO YOUR FRONT DOOR 2 p.m. to 5 p.m. [email protected], RBC Dain Anywhere in the USA for all badge holders, spouses and escort- Rauscher, Member NYSE/SIPC. – SINCE 1987 – ed guests. Continues Oct. 15-19, open from NEW - USED / BUY - LEASE 11 a.m. to 3 p.m. for this same group. During ANY MAKE, ANY MODEL two weekends, Oct. 13-14 and Oct. 20-21, ROLAND S. 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78 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 BOOKS

A Wake-up Call The ultimate example of what the While anti-Americanism world considers American foreign policy catastrophes is the invasion and What They Think of Us: varies from nation to occupation of Iraq. Many Iraqis see International Perceptions nation, this study leaves the U.S., in the words of contributors of the United States Since 9/11 no doubt that it is one Ibrahim Al-Marashi and Abdul Hadi David Farber, editor, Princeton al-Khalili, “as a brutal, even murder- University Press, 2007, $24.95, of the defining ous neocolonial power.” hardcover, 187 pages. characteristics of our new century. This volume has much to com- REVIEWED BY JOHN BROWN mend it. While not overly detailed, it does not dumb down a complicated “Why do they hate us?”, the ques- issue and presents a truly internation- tion asked by President George W. al perspective. Its treatment of the Bush in his address to Congress in the hostility toward the United States at world’s reactions to 9/11 is particular- wake of the 9/11 attacks, is rephrased the present time, the volume sug- ly illuminating, suggesting that sympa- in this book in a more dispassionate gests, is not American values or cul- thy for America after that event was way: “What [do] they think of us?” To ture, although in a country like Russia not universal, contrary to what is often answer that question, the study’s edi- there has been a strong reaction assumed in the United States. In fact, tor, David Farber, a professor of histo- against American notions of democra- foreigners saw 9/11 in a different con- ry at Temple University, has assem- cy. Nor can anti-Americanism be sim- text than most Americans did. For bled seven essays (by 12 contributors) ply explained by resentment against some — in Mexico, for example — examining how America is seen in our power and influence, even if voic- the U.S. deserved what it got. Iraq, Indonesia, Turkey, China, Rus- es are raised, such as in Indonesia, Some will fault this book, with its sia, Mexico and Europe. “At least one that America is “like a giant that needs limited use of public opinion surveys, author of every essay,” Farber writes too much” (according to Muhammad for being impressionistic rather than in his preface, “is a citizen of the Fuad, an American studies scholar at scientific. It could also be said that its nation about which the authors are the University of Indonesia). contributors, as intellectuals and writing — even if he or she is not, at Rather, the main cause of anti- scholars, are part of a small universe this moment, living in that nation.” Americanism today is the policies of that does not represent the views of The contributors note that, in their the U.S. government. While through- those in other professions or social individual countries, anti-American- out the globe “people remain remark- strata in their countries. Still, this vol- ism is not new. From their brief ably friendly to individual Americans,” ume is a reminder — and to Ameri- accounts of the complex historical Farber points out, in “many parts of cans, it should be a painful one — of development of this phenomenon, it the world … large majorities are just how far the reputation of our is clear that the extent of anti- appalled by American policy.” True, nation has declined. n Americanism, and what contributed certain actions have met with ap- to it, is not the same everywhere. But proval — American tsunami relief, John Brown, who was in the Foreign while the magnitude of anti-Ameri- Melani Budianta writes, “won the Service for over 20 years, compiles the canism varies from nation to nation, hearts of many Indonesians” — but, Public Diplomacy Press and Blog this study leaves no doubt that it is one on the whole, the Bush administra- Review for the USC Center on Public of the defining characteristics of our tion’s unilateral and militaristic under- Diplomacy (http://uscpublicdiploma new century. takings have been viewed with suspi- cy.com/index.php/newsroom/john The main reason for this rampant cion and horror overseas. brown_main/).

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 79 IN MEMORY

Marie Besheer, 91, a retired volunteering in the library, the muse- (1961-1966) and in Tel Aviv (1966- Foreign Service nurse, died in Lake um and the community theater. 1970). City, Fla., of a simultaneous heart at- Survivors include a sister, Rose Following Mr. Breithut’s retire- tack and stroke on June 9. Cervasio, and a niece, Josephine ment, the couple moved to Highland Ms. Besheer, who was proud of Circello, both of Brooklyn, N.Y.; Beach, Fla. There Mrs. Breithut her Lebanese-Christian heritage, was another niece, Elizabeth Young; a swam in the ocean every day, played born in Connecticut in 1916, the nephew, Matthew Besheer; several golf and bridge, and took courses in a fourteenth of 16 children, of whom other nieces and nephews and their broad spectrum of subjects at the the first 10 were born in Lebanon. descendants; a close friend and com- local university. She often returned She graduated from The Brooklyn panion in Ms. Besheer’s final years, to Sweden with her daughter to visit Hospital Training School for Nurses, Sophia Boano Merritt; and many family and friends. and earned a B.S. from the University friends in the Foreign Service, the Mr. Breithut died in 1987. Mrs. of Oregon Medical School. Peace Corps and the Lake City com- Breithut is survived by her daughter After working as a private nurse munity. Kristina Strand of Marshall, N.C.; and later as a county staff nurse, Ms. two grandchildren, Brett Miller of Besheer joined the State Department Atlanta, Ga., and Elizabeth Moody of in 1959. She served in Mogadishu, Trinity, Fla.; two great-grandchildren, Cairo, Khartoum, Abidjan, Rawalpin- Ulla K. Breithut, 89, widow of Collin Fryer and Ava Moody, also of di, Islamabad, Ouagadougou and the late FSO Richard C. Breithut, Trinity, Fla.; and her sister Inga Yaounde. Her final post was Phnom died at the Hospice of Palm Beach, Manhem of Sweden, as well as many Penh, from which she was evacuated Fla., on May 19 from acute leukemia. cousins, nieces and nephews, also of with the last departures in 1975. Mrs. Breithut was originally from Sweden. While in Islamabad, Ms. Besheer Sweden, where Richard Breithut was adopted three children, who survive stationed with the U.S. Treasury her. She received Merit Honor Department after World War II. Awards in 1965 and 1973. They married and, with their daugh- Richard John Dols, 74, a retired Ms. Besheer greatly enjoyed travel ter Kristina, moved to London. Foreign Service officer, died on June and the cultural diversity of life over- In 1950, Mr. Breithut joined the 10 at his home in Midlothian,Va., seas, and she was known for her Foreign Service, becoming part of from Parkinson’s disease. inquisitive mind and warm heart. In Averill Harriman’s team at Embassy Mr. Dols was born in Glencoe, wartorn Cambodia, she opened her London. The couple served a tour of Minn., and grew up in nearby house each weekend to street chil- duty in Paris from 1952 to 1954, and Cologne, where his father ran the dren so that she could provide them were then posted to Washington, local bank. In 1954, after graduating with baths, decent food and tempo- D.C., from 1954 to 1959. After an from the University of Minnesota, he rary security. assignment in Ankara, where Mr. was commissioned a second lieu- In retirement, Ms. Besheer was Breithut was the American adviser to tenant in the U.S. Air Force. While very involved in the cultural life of the Central Treaty Organization from waiting to begin active duty, he fin- Lake City. Her activities included 1959 to 1961, they served in Karachi ished one year of law school at the

80 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 I N M EMORY

University of Minnesota. After flight Dols of DuPont, Wash., and Jonathan and in fundraising efforts for the training in Florida and Oklahoma, he Dols and Andrea Keum of Alexan- national symphony. Ten years later, spent a year in South Korea flying dria, Va.; and 15 grandchildren. she moved to Tucson, Ariz. Ms. reconnaissance missions over inter- Jester was interviewed for the For- national waters near North Korea and eign Affairs Oral History Collection the Soviet Union. in 1998. Friends and colleagues re- In 1958, Mr. Dols left active duty Dorothy M. Jester, 92, a retired call her love of music, art, theater, and returned to law school. Follow- Foreign Service officer, died on Aug. books, bridge and dachshunds. She ing a brief stint as a prosecutor in 21, 2006, in Tucson, Ariz., of conges- leaves no immediate survivors. Bloomington, Minn., he moved to tive heart failure. Washington, D.C., in 1961 and joined Born in Arizona and raised in the Foreign Service. His nearly 30- Texas and California, Ms. Jester year diplomatic career began with a attended Stanford University where Robert L. Dwelley, 82, a retired posting at the U.S. consulate in she majored in Spanish. She re- Foreign Service staff officer, died at Bordeaux. Subsequent assignments ceived a B.A. in 1936 and an M.A. in his home in Brunswick, Maine, on in Canada, Swaziland, Niger and 1940. A fluent Spanish speaker — April 9. New Zealand were interspersed with her bilingual mother had been raised Born in Brunswick, Mr. Dwelley tours in Washington. in Mexico — she taught school and served in the U.S. Navy during World During one of these in the mid- worked as an administrative assistant War II. He received a B.A. degree in 1970s, Mr. Dols became aware that in the private sector in Quito and history from the University of Maine several congressmen had violated Lima from 1941 to 1945, when she in 1950. a House ethics rule prohibiting returned to the U.S. and joined the Mr. Dwelley entered the Depart- members from accepting trips to Foreign Service. Her first posting ment of State as a civil servant in South Africa paid for by the South was to Munich, in 1946. 1951, and was temporarily assigned African government. He would later Ms. Jester was sent to Mexico City to Dusseldorf, Manila and Moscow. blow the whistle on the miscreant in 1948 as a junior officer on loan to In 1961, he was posted to London as congressmen on national television the U.S. Information Agency. From a supervisory communications offi- news. there she was posted to Mexicali as a cer, and in 1962 became a Foreign During his final Foreign Service consular officer in 1951. In 1954, she Service staff officer. assignment, Mr. Dols ran a training was assigned to Managua as an eco- In 1964, Mr. Dwelley was trans- program for diplomats from several nomic officer, and then in 1956 ferred to Lima as communications newly-independent Pacific island moved on to Bonn, where she served and records supervisor, and a year nations. He retired in 1990. as assistant commercial attaché. later was transferred again, to Santo In retirement, he worked as a con- Returning to Washington, D.C., in Domingo. He was assigned to the tractor for the Foreign Service 1958 for a four-year tour in the department as a budget analyst from Grievance Board, avidly researched Bureau of Economic Affairs, she was 1967 to 1968, when he became the his Dutch, German and Irish ances- next posted to Santiago to do eco- budget and fiscal officer in Jeddah. try, and pursued his love of Civil War nomic reporting in 1962. In 1964, He transferred to Amman in 1970. history. He enjoyed working on his Ms. Jester was sent to Santo Domin- His last post before retiring was farm in Rappahannock County, Va. go to head the economic section. Bogota, where he served from 1973 His first wife, Mary L. Dols, died Her tour was interrupted by an upris- to 1975. Following retirement, he in 1971. He is survived by his second ing in 1965; after heading up the returned to the State Department for wife, Betty L. Dols, to whom he was evacuation of American citizens, she several temporary assignments until married for over 32 years; seven chil- was posted to Mexico City for a secnd 1984. dren, Gregory Coxson of Olney, Md., tour. Mr. Dwelley settled in his home- Molly Gill of Tempe, Ariz., Sheilah Following retirement in 1971, she town, but spent winters in Costa Dols of Annandale, Va., Sue Stuffle- settled in Guadalajara. There she Rica. He leaves no immediate sur- beam of Littleton, Colo., Stephen was active in the American Society vivors.

SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 81 I N M EMORY

Philip M. Kaiser, 93, a former persuading Senegalese President his sleep at his home in Southern ambassador and an advocate for Leopold Senghor to deny the USSR Pines, N.C., on May 7. labor, died on May 24 of aspiration use of the Dakar airport for refueling Ambassador Kubisch was born in pneumonia at Sibley Hospital in during the Cuban missile crisis. In Hannibal, Mo., in 1921. He received Washington, D.C. 1964, he was transferred to London his undergraduate degree from the Ambassador Kaiser was born in to serve under Ambassador David University of Missouri, was awarded New York City. He earned a B.A. K.E. Bruce as deputy chief of mission an honorable Doctor of Jurispru- degree from the University of Wis- with the personal rank of minister. dence degree from Central Metho- consin in 1935. A Rhodes scholar, he He was welcomed back to London by dist College, and completed his grad- received another B.A. and an M.A. in his many Oxford friends in the Labor uate studies at the Harvard Business 1939 from Balliol College of Oxford Party, including Prime Minister School. He married Constance Rip- University. He also traveled widely in Harold Wilson. pe in 1944. Europe before the war. Amb. Kaiser resigned his position Amb. Kubisch served in the U.S. In 1939, Amb. Kaiser joined the at the embassy in 1969, but stayed on Navy from 1941 to 1945 aboard the Federal Reserve Board in Washing- in London as managing director of USS New York and USS Guam, partic- ton, D.C., as a research economist. Encyclopedia Britannica. He also ipating in the battles of Iwo Jima and Three years later, he was named chief became active in Democrats Abroad, Okinawa and in the Philippine Libera- of the project operations and plan- an affiliate of the Democratic Party. tion Campaign. After the war, he join- ning staffs at the Board of Economic At the 1976 Democratic Convention, ed the Foreign Service. As a Foreign Warfare, later the Foreign Economic he co-chaired the committee on for- Service staff officer, he was posted to Administration. He was a policy plan- eign policy; and in 1977, President Rio de Janeiro in 1947. In Paris from ner at the State Department for a Carter named him ambassador to 1949 to 1950, he was attached to the short time before joining the Depart- Hungary. There he played a key role Economic Cooperation Administra- ment of Labor in 1946 as executive in negotiations that resulted in the tion. He then returned to work in pri- assistant to the assistant secretary for return the Crown of St. Stephen to vate industry for 10 years. international affairs. Hungary in 1978. In 1980, he was In 1961, Amb. Kubisch re-entered In 1949, he was appointed assis- appointed ambassador to Austria, the Foreign Service. Commissioned tant secretary of labor for internation- where he served for a year. as a member of the Foreign Service al affairs by President Truman. In Retiring to Washington, D.C., Reserve, he was appointed deputy that position, he worked to strength- Amb. Kaiser wrote a book, Journey- director of the U.S. Operations en free trade unions in Europe and ing Far and Wide: A Political and Mission — later the USAID mission Japan, and helped create labor Diplomatic Memoir. He was a popu- — in Colombo. From 1962 to 1964, attaché positions to do so. In 1953, lar raconteur and a competitive ten- he served as director of the USAID he became a labor adviser to the Free nis player, and excelled at bridge and mission in Rio de Janeiro with the Europe Committee. He also joined Scrabble. personal rank of minister. In 1964, he the campaign staff of Averill Harri- He is survived by his wife of 66 received his commission as an FSO man, becoming his special assistant years, Hannah Greeley Kaiser of and was appointed economic coun- when Harriman was elected governor Washington, D.C.; three sons, Robert selor, still directing the USAID mis- of New York in 1954. From 1958 to G. Kaiser, an associate editor of The sion. In 1965, he returned to State to 1961, he taught courses on interna- Washington Post, David Kaiser of direct the Office of Brazilian Affairs. tional labor affairs at American Williamston, Mass., and Charles Kai- He was assigned to Mexico City as University. ser of New York City; and four grand- DCM in 1969. In 1961, Mr. Kaiser was commis- children. As chargé d’affaires in Paris from sioned as a Foreign Service Reserve 1971 to 1973, Amb. Kubisch assisted officer and appointed by President with the Vietnam peace negotiations. Kennedy as ambassador to Senegal, He also supervised the diplomatic con- with concurrent accreditation to Jack B. Kubisch, 85, a retired tacts between the U.S. and China, Mauritania. He was responsible for FSO and former ambassador, died in which led to the establishment of liai-

82 FOREIGN SERVICE JOURNAL/SEPTEMBER 2007 I N M EMORY

son offices in Washington and Beijing. National Defense University (Na- Born in Pike County, Ohio, Mr. In 1973, he was appointed assistant tional War College), a consultant for McGowan graduated from Southern secretary of State for inter-American the Council on Foreign Relations, a Methodist University in Texas. affairs and U.S. coordinator of the board member of the Panama Canal In 1965, he joined the Foreign Alliance for Progress in Latin America. Company, and a Woodrow Wilson Service and, one year later, was posted He served as ambassador to Greece Fellow. to Lisbon. In 1968, Mr. McGowan from 1974 to 1977, and then as vice He is survived by his wife of 63 was detailed to USAID’s Civil president of the National Defense years, Connie of Southern Pines, Operations and Rural Development University until 1979, when he retired. N.C.; four children; six grandchil- Support program in rural Vietnam. Amb. Kubisch held presidential dren; and a great-grandchild. He was transferred to Luanda in 1970, appointments from six presidents, and then posted to Rio de Janeiro as attaining the rank of career minister. general services officer in 1973. Later He was awarded the Meritorious assignments took him to Brazil, El Civilian Service Medal and the Howard L. McGowan, 63, a Salvador and Cape Verde, where he French Legion d’Honneur Award, retired Foreign Service officer, died was chargé d’affaires from 1978 to with the rank of commander. on May 18 of complications from 1980. While on assignments in Wash- During retirement, Amb. Kubisch heart bypass surgery at Virginia Hos- ington, D.C., he served primarily as a served as board chairman of the pital Center in Arlington, Va. personnel officer. He retired from the

FSYF

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Foreign Service in 1993. He joined the Foreign Service in search and Intelligence and deputy Following retirement, Mr. Mc- 1951, and was assigned to Florence as assistant director for public informa- Gowan accepted temporary assign- director of the USIS center there until tion. He also served on the faculty of ments from State as an administrative 1956. He then served, successively, as the National War College. He officer in various African posts. He acting chief public affairs officer in retired from the Foreign Service in recently provided administrative ex- Taipei, representative to the Naval 1975. pertise and support to the African War College, deputy director of Throughout his career, Mr. Nadler Union peacekeeping force in Darfur, USIA’s Office of Policy & Plans, was a frequent contributor to the where he was responsible for super- CPAO in Khartoum and Conakry, Foreign Service Journal and, during vising the contractual operations in Edward R. Murrow Fellow at the one Washington tour, served as a support of the A.U. mission in Sudan. Fletcher School of Law and Diplo- member of the FSJ Editorial Board. But, as colleagues there recalled, Mr. macy and, finally, assistant director of His contributions ranged from serious McGowan was “much more than a USIA’s Office of Research. to satirical. Contemporaries particu- ‘government technical monitor.’ He In 1974, he received the Edward larly recall his “Life and Love in the was a respected colleague, a leader, a R. Murrow Award from Tufts Uni- Foreign Service” monthly feature. friend, a father figure, and someone versity for excellence in public diplo- He was a member of DACOR and the whom we could always count on dur- macy. Mr. Moceri retired in 1976. National Society of Arts and Letters. ing difficult times.” Shortly before his His wife of 41 years, Ruthanne death, he served as a member of the Hunter Nadler, who accompanied Sudan Programs Group of the State him on all his foreign assignments, Department’s Bureau of African Af- S.I. “Sy” Nadler, 91, a retired died in 1985. Survivors include three fairs. Foreign Service officer with USIA, daughters and two sons: Elizabeth Mr. McGowan is survived by his died on July 3 in Washington, D.C., McGranahan and Mary Macdonald of wife, Lucia Bernardo McGowan of after a brief illness. Maryland; Hunter Nadler of Califor- Arlington, Va.; a daughter, Marcia B. Born in New York City, Mr. Nadler nia; Christopher Nadler of New McGowan of Arlington, Va.; a brother, attended Columbia University from Jersey; and Marci Nadler Waugh, of and four sisters. 1932 to 1937, receiving his B.A. from Washington, D.C.; nine grandchil- Columbia College and M.A. from dren; and two great-grandchildren. Teachers College. He wrote radio scripts professionally and, for the two James Moceri, 91, a retired years between leaving Columbia and Foreign Service officer with USIA, entering military service in March Midori (Mimi) Kaneko O’Brien, died on March 14 in Auburn, Wash., 1941, taught high school in New York 80, the widow of State Depart-ment of a heart attack. City. communicator William Warren Mr. Moceri received his B.A. He began his military service writ- O’Brien, died of cancer in a nursing degree in 1936 from the University of ing field manuals and scripts for train- home in Prospect Park, Pa., on June 4. Washington. He served in the U.S. ing films. In 1944, he was assigned Born in Nangano Ken in 1927, Navy from 1944 to 1946 and was a to the Office of Strategic Services, Mrs. O’Brien married her husband veteran of the Iwo Jima and Okinawa and served with that organization in 1951, when he was working as a battles in World War II. From 1946 in China. He was separated from the civilian for the U.S. military in Japan. to 1947, he was a Rockefeller Foun- military in September 1946 and then Mrs. O’Brien accompanied her hus- dation Fellow, and from 1947 to 1949 joined the CIA, later transferring to band during his career in the For- he taught history at Farragut College. USIA. eign Service to Naimey, Bangkok, As a Fulbright scholar in Italy from Mr. Nadler served overseas in Seoul, Ouagadougou, Abidjan and 1949 to 1951, he studied historical Tientsin, Singapore, Taipei, Buenos Antananarivo. She was known at all interpretations of the French Revolu- Aires and Ankara. His Washington, their posts for her warm hospitality. tion at the Italian Institute of Histori- D.C., assignments included tours as After her husband’s retirement, cal Studies. director of USIA’s Office of Re- Mrs. O’Brien nursed him devotedly

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and single-handedly through a rare James Malone Theodore Rent- Pa., until 1959, when he entered the and extremely difficult illness. He schler, 74, a retired FSO with USIA Foreign Service. With the United died in 1981. and former ambassador, passed away States Information Agency, he was Mrs. O’Brien had a great love of in Paris during the first week of May posted as assistant cultural attaché in animals. She belonged to The Japan- after a long illness. Rio de Janeiro and Sao Paulo. In ese Christian Church of Philadelphia. Ambassador Rentschler was born 1961 he was assigned to Fez, serving Although in later years her activities in Rochester, Minn. He graduated until 1963, when he was assigned to were severely limited by osteoporosis, from Yale University with a B.A. in Ouagadougou. From 1965 to 1966, she never lost her interest in her 1955. In 1964, he received a degree he was detailed to the Johns Hopkins friends, or her courage. from the University of Paris, and in University’s European Center in She is survived by her husband’s 1966 earned an M.A. from Johns Hop- Bologna, Amb. Rentschler was press cousins; by close Japanese friends in kins University. He spoke French, attaché and acting public affairs coun- the Philadelphia area; and by Foreign Portuguese, Italian and Romanian. selor at USNATO in Paris and Service and Peace Corps friends. Amb. Rentschler served in the Brussels until 1971, when he trans- Contributions in Midori O’Brien’s U.S. Army Security Agency as a mili- ferred to Bucharest. name may be made to Taylor Hos- tary linguist from 1955 to 1958. He From 1974 to 1975, he was a mem- pice, P.O. Box 147, Ridley Park PA was a mortgage/title examiner at ber of the Senior Seminar in National 19078. Berks County Trust Co. in Reading, and International Affairs at the

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Foreign Service Institute. In 1976, he to Hong Kong in 1956. From 1958 to home in Middleburg, Va. Mrs. Swe- was posted to Rabat as counselor for 1960 he was a political officer in denburg was also the winemaker who public affairs. Amb. Rentschler re- Seoul. He received further intensive in 2005 won a landmark U.S. Supreme turned to Washington, D.C., in 1978 Japanese-language training (1960- Court battle to ship wine between as a senior staff member and director 1961), after which he was assigned as states. of Western European Affairs on the a political officer in Tokyo. In 1963, Mrs. Swedenburg was born in National Security Council, where he he became principal officer in Springfield, Ill., and graduated from served both Presidents Carter and Fukuoka. what is now Illinois State University Reagan. Returning to Washington, D.C., in in Normal. She pursued graduate From 1982 to 1985, he served as 1966, Amb. Shoesmith served as studies at the University of Miami, ambassador to Malta. In 1986 he country director in the Office of the the University of Michigan and the served as ambassador-in-residence at Republic of China Affairs in the University of California at Los the Fletcher School of Law and Bureau of East Asia and Pacific Angeles. After teaching high school Diplomacy at Tufts University. Affairs from 1967 to 1971. After a English and French, she entered the Following retirement from the year as a member of the Senior Foreign Service in 1952. She was Foreign Service, Amb. Rentschler Executive Seminar, he was posted in assigned to Saigon — then “the Paris was director of press and communi- Tokyo as deputy chief of mission from of the East,” she recalled — where cations at the OECD in Paris. 1972 to 1977 and then served as con- she worked in personnel and admin- sul general in Hong Kong until 1981. istration. There she met FSO Wayne He was promoted to career minister Swedenburg, and they were married in 1982, and in 1983 was appointed in 1953. In accord with the regula- Thomas P. Shoesmith, 85, a ambassador to Malaysia, where he serv- tions of the time, Mrs. Swedenburg retired FSO and former ambassador, ed until his retirement in March 1987. resigned from the Service. died of cancer at home in Springfield, In retirement, he was active in For the next 20 years, Mrs. Swe- Va., on April 26. the Japan-America Society, serving denburg accompanied her husband on Ambassador Shoesmith was born as its president and, for a time, assignments to Vienna (1953-1955), in Palmerton, Pa., on Jan. 25, 1922. simultaneously as president of the Khartoum (1956-1958), Freetown After graduating from the University National Association of Japan-Am- (1961-1964), Mogadishu (1964-1966) of Pennsylvania in 1943, he enlisted erica Societies. For a number of and a two-year posting to Dhaka that in the Army. Following intensive years he tutored students in English coincided with the 1971 Indo- Japanese-language training at Yale through the Literacy Council of Pakistani War and the independence and Michigan Universities, he was Northern Virginia, and continued of Bangladesh. They returned to the commissioned and assigned in 1946 his hobby of oil painting begun in Washington area in 1972. After an as a political intelligence analyst in the early 1950s. assignment in Lagos, Mr. Swedenburg the headquarters of the Supreme Amb. Shoesmith is survived by his retired in 1980. Commander Allied Powers in Tokyo. wife Martha H. “Mike” of Spring- The couple settled in Middleburg, Upon discharge from the Army in field, Va.; his son Thomas Mark Va., on Valley View Farm, where they 1948, Amb. Shoesmith entered the Shoesmith of Shanghai; his daughter opened a winery in 1988. The Swe- Graduate School of International Jo Shoesmith of Harpers Ferry, W. denburgs and their son Marc did much Studies at Harvard University, where Va.; and two grandchildren, Julia and of the work themselves. She tended he received his master’s degree in Michael of Shanghai. their tasting room for six hours a day, 1949. Following two additional years seven days a week, and kept current on of graduate study in political science, vineyard pests and fungi, equipment he entered the Department of State problems and the state of the harvest. in 1951 as a research analyst in Juanita Swedenburg, 82, a for- In 2000, Mrs. Swedenburg be- Japanese political affairs. mer FSO and wife of the late FSO came the lead plaintiff in a lawsuit the Amb. Shoesmith joined the For- Wayne Swedenburg, died of conges- couple filed to overturn the ban many eign Service in 1955, and was assigned tive heart failure on June 9 at her states have on direct interstate wine

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shipments. After five years of legal bat- Naples, Fla., on May 20. tles, the Supreme Court ruled on May Ms. Wharton was the last surviving 16, 2005, that states permitting in-state child of Anne Ramsey Wharton and wineries to sell directly to consumers Dr. Robert Leslie Wharton. She grew may not deny that right to out-of-state up in Cardenas, Cuba, where her producers. Mr. Swedenburg died in father, a Presbyterian minister, found- 2004, a year before their Supreme ed and supervised La Progressiva Court victory. Presbyterian School. Mrs. Swedenburg was described in Following her 1929 graduation her Washington Post obituary as “a from Queens College in Charlotte, hard-charging woman whose personal- N.C., Ms. Wharton taught fourth ity was a mix of diplomacy, gruff charm grade for one year in Charlotte and and bullheadedness.” A member of math for three years at La Progressiva. the Daughters of the American Revo- She then moved to Miami, where she lution, she was the Virginia Wineries worked for George Merrick, develop- Association person of the year in 2006 er of Coral Gables, Fla. and received its lifetime achievement In 1939, Ms. Wharton began a 23- award. year career with the Foreign Service, She is survived by her son Marc serving in Havana, Athens, Singapore, Swedenburg of Middleburg, Va.; a Mexico City and Jakarta, as well as brother; and a granddaughter. Washington, D.C. In 1959, she was presented the Meritorious Service Award by Under Secretary Douglas Dillon for her outstanding work devel- Etta Holitik Thurmond, 79, a oping a course on disbursing, budget retired Foreign Service nurse practi- and fiscal operations for the Foreign tioner, died on May 4 at her residence Service Institute. in Kerrville, Texas. Following her retirement at the Prior to joining the Foreign Service end of 1962, Ms. Wharton and her sis- in 1977, Mrs. Thurmond worked as a ter, Mrs. Anita Wharton Guthery, nurse in Saudi Arabia with a private made their home in Naples. There company. During a 16-year Foreign she enjoyed volunteering at the Service career, she served in Bucha- Naples Hospital and at a local animal rest, Quito, Mogadishu and Karachi. shelter. In 1993, she retired to Kerrville, Ms. Wharton was preceded in Texas. She worked as a nurse at Camp death by her parents, two sisters, Waldemar, a girls’ summer camp in the Elizabeth Wharton McKnight and nearby hills. Anita Wharton Guthery, and a broth- Mrs. Thurmond is survived by a er, Robert L. Wharton Jr. daughter, Kathy Thurmond of Bel- Memorial contributions may be chertown, Mass.; two sons, Perry made to Hospice, 1095 Whippoorwill Thurmond and Michael Thurmond; Lane, Naples FL 34105. and a brother, Dr. George Holitik. Send your “In Memory” submission to: Foreign Service Journal Attn: Susan Maitra, 2101 E Street NW, Washington DC 20037, or Josephine Douglas Wharton, e-mail it to [email protected], or fax it to (202) 338-8244. No photos, please. 98, a retired FSO, died at her home in

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SEPTEMBER 2007/FOREIGN SERVICE JOURNAL 91 REFLECTIONS Politically Incorrect in Burma

BY DON NORTH

n a makeshift stage in a slum wisecracked, “You used to call a thief a the 1984 Orwell wrote about later in dwelling on 39th Street in thief; now you call him a government his life: every artist, journalist, and OMandalay, it is still over 100 servant.” even athletes, must be registered with degrees at 8 p.m. The Moustache The generals were not amused. the government, and prior permission Brothers — actually two brothers and Charged with “disrupting the stability is required to create anything new or a cousin — are checking the mikes and of the Union,” the two comedians stage a performance, including clear- plugging in the electric generator. In received the maximum sentence of ances from police, hospitals and mili- this neighborhood of jerry-built houses seven years at hard labor in a jungle tary intelligence. So it is something of and open sewers, the electricity is out prison camp. At the time of their ar- a mystery that the brothers’ outpost of most of the time. rest, a government newspaper wrote, uncensored “pwe” is allowed to exist. Tonight, as they do seven nights a “They satirized and mischievously The brothers believe it is because week, the three comedians are attacked the government, disparaging the generals are reluctant to risk the preparing to regale the audience of its dignity and making it a laughing bad publicity that another arrest would foreign tourists with their “politically stock.” After serving five years break- cause, curtailing the flow of tourist dol- incorrect” humor. The tiny living ing rocks, feet and hands in shackles, lars. “Tourists are our Trojan horse. room is crammed with up to 30 cus- they were suddenly released. Tourism protects us and through them tomers, each paying the equivalent The Moustache Brothers credit the world can learn of our plight,” says of five dollars for a seat. their early release and, indeed, their Lu Maw. About 250,000 foreign “If the secret police come in the continued freedom, to letters of sup- tourists visit Burma each year (visa re- front, we will escape out the back,” port from American comedians Rob strictions were eased a few years ago). jokes Lu Maw, startling a German Reiner and Bill Maher, as well as After the show the brothers encour- tourist in the front row. The perform- Amnesty International. They returned age interviews. “Everybody hates the ers hold aloft a sign in English pro- home emaciated but unbowed and, in government,” says Lu Maw in a voice claiming, “Moustache Brothers Are the vaudeville tradition, vowed the raspy after three hours of almost non- Under Surveillance.” show must go on, despite orders to stop performance. “One day we will In Burma the government may be a cease performing or face prison again. see change in our country. I haven’t joke, but to laugh is to risk prison. In Lu Maw, the only English speaker, given up hope.” 1996, two of the group, Par Par Lay starts with a monologue of jokes and On the way back to my hotel a and Lu Zaw, performed at the Ran- hackneyed clichés that would make Jay young rickshaw peddler tells me the goon home of pro-democracy leader Leno or David Letterman grimace. Moustache Brothers are heroes and a Aung San Suu Kyi. As usual, the junta Overall, it is a bizarre mix of slapstick, true voice of the people in today’s was the butt of their jokes. Par Par Lay costumed dancers and traditional Burma. The paranoid and insecure Burmese music, like the “pwe” — men who rule are fearful that silencing Don North has covered war and ter- entertainment by a troupe of political them could unleash a storm of contro- rorism in Vietnam, Afghanistan, Col- satirists, musicians, puppets and versy that would again fill the streets ombia, the Middle East and the Bal- dancers — described by George with protestors, as in 1988. kans, both as a cameraman and corre- Orwell in his classic novel Burmese But as one foreign tourist observed, spondent for ABC News and NBC Days, written when the author was a “It is one thing to arrest Lenny Bruce, News and as an independent filmmak- British colonial police officer in but can a government really be er. He also lectures on journalism and Northwest Burma. brought down by Henny Young- trains television journalists. Now, however, Burma has become man?”

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