PUBLISHED BY THE AMERICAN FOREIGN SERVICE ASSOCIATION MAY 2018

DEMOCRACY TODAY

STRAIGHT TALK ON DIPLOMACY

PRESERVING AMERICA’S GLOBAL LEADERSHIP

FOREIGN SERVICE May 2018 Volume 95, No. 4

Focus on Democracy Cover Story

19 Straight Talk on Diplomatic Capacity Lessons learned from the Tillerson tenure can help the new Secretary of State enhance the State Department’s core diplomatic and national security mission. By Alex Karagiannis

45 Supporting Civil Society in the Face of Closing Space Development professionals focus on the need to bolster 35 and expand civil society’s “open space” in countries around the world. By Mariam Afrasiabi 26 35 and Mardy Shualy The State of Democracy USAID Election in Europe and Eurasia: Assistance: Four Challenges Lessons from the Field 51 In a decade of backsliding on Since the 1990s electoral assistance Authoritarianism Gains democracy around the world, the has come into its own as a branch in Southeast Asia countries of Europe and Eurasia of foreign aid and as an academic A new breed of autocrat seems to be feature prominently. discipline. taking root in Southeast Asia today. By David J. Kramer By Assia Ivantcheva Is the “domino theory” finally playing out? 30 40 By Ben Barber Worrisome Trends Saudi Arabia: in Latin America Liberalization, 55 Widespread corruption, crime Not Democratization Democracy in Indonesia: and a lack of security, education, The plan for sweeping changes to A Progress Report employment and basic services are meet economic and demographic On the 20th anniversary of its driving a loss of faith in democracy challenges does not appear to include democratic experiment, Indonesia throughout the continent. an opening-up of the political system. can cite significant gains. Growing By Alexi Panehal By Jerry Feierstein challenges may threaten that progress. By Edmund McWilliams

THE FOREIGN SERVICE JOURNAL | MAY 2018 5 FOREIGN SERVICE

Perspectives 85 Reflections Departments The Card from Kabul 7 By Ben East 10 Letters President’s Views Preserving America’s 13 Letters-Plus Global Leadership By Barbara Stephenson 14 Talking Points 72 In Memory 9 Letter from the Editor 76 Books Whither Democracy? By Shawn Dorman Marketplace 17 86 Speaking Out Local Lens 79 Classifieds What State Should Bring to the Merzouga, Morocco Table: Cultural and Language By Stuart Denyer 81 Real Estate Expertise By Phil Skotte 84 Index to Advertisers

AFSA NEWS THE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATION 60 The State of State 61 “Deep Dish” Podcast Hosts AFSA President 61 61 AFSA Happy Hour 62 State VP Voice—It Can’t Be Easy 63 FAS VP Voice—Looking Back, Moving Forward 63 Telling Our Story—Outreach 64 Where We Stand—EER Season: Thinking About the Precepts 65 2017 Sinclaire Language Awards Recipients 65 Nominate a Colleague for an MSI! 66 Back to School: Labor Management Matters 67 Ensuring a Better Packout 68 Thank You for Your Service: FS Retirees 70 AFSA Governing Board Meeting, March 2018 70 AFSA Welcomes New USAID VP 71 AAFAA Launches Internship Scholarship Fund

On the Cover: Art: Camille Chisholm

6 MAY 2018 | THE FOREIGN SERVICE JOURNAL PRESIDENT’S VIEWS

Preserving America’s Global Leadership

BY BARBARA STEPHENSON

e in the Foreign Service, that covers core diplomatic capability, also matic superiority in the face of such fund- the team that bears such held firm. If OCO (overseas contingency ing decisions. As the National Security responsibility for main- operations) funding is taken into account, Strategy says, we need to be building up Wtaining America’s global total funding for core diplomatic capabil- diplomatic capability—not pulling back. leadership role, are again in a period of ity dipped slightly (by 1.6 percent, from Even before the painful and unnec- significant transition and change. This $5.05 billion in 2017 to $4.96 billion in essary loss of talent over the past year, is a good time to take stock and look 2018), while still coming in ahead of 2016 American diplomacy had been on a star- forward, asking what each of us needs to levels ($4.89 billion). If we look only at vation diet, and tales of depleted political, do to ensure that the world continues to “enduring” (or base) funding for core dip- economic and public diplomacy sections look to the United States for leadership. lomatic capability without OCO, funding at embassies were a regular staple of We are working under a new National in 2018 is actually up compared to 2017. AFSA’s conversations with members. I Security Strategy, one that takes a clear- I am sharing these complicated hear this often: With just one more mid- eyed look at the serious and escalating numbers for a reason. As stewards of this level officer at post, we could have such threats to our nation and concludes institution, we need to understand the an impact, really put America’s soft power that “we must upgrade our diplomatic funding decisions that underpin Ameri- to work, really level the playing field for capabilities to compete in the current ca’s global leadership role. American businesses. environment.” Meanwhile, AFSA’s recent Simply put, $5 billion—the amount Rebuilding our nation’s diplomatic in-depth review of Congressional Budget we spend on core diplomatic capabil- capability will take time, and it will require Justifications showed that spending on ity—is not a big number. It is about what all of us to give our best effort. Now that core diplomatic capability has declined America spends annually supporting Congress has spoken and rejected cuts significantly over the past decade. Afghan forces, and a little more than one- with such clarity, AFSA will press for an In anticipation of deep funding cuts, third the cost of a new aircraft carrier. immediate restoration of hiring and pro- hiring and promotions were cut deeply, What’s more, the $5 billion America motion numbers. We will press to deploy contributing to the loss of hundreds of spends on core diplomatic capability is more mid-level officers to the field, where Foreign Service officers and specialists, not a big number compared to the $9.5 the Foreign Service delivers the greatest with the loss in top leadership ranks billion China budgeted for diplomacy value for the American people. particularly pronounced. this year. While apples-to-apples com- I sincerely hope that the tide has We now know that Congress, with parisons are hard to nail down, the trend turned, and that reinforcements will overwhelming bipartisan support, firmly lines are clear. China increased spend- soon be on their way. In the meantime, rejected deep cuts and passed a budget ing on diplomacy in 2018 by 15 percent until reinforcements arrive, your role in that actually increases the international over 2017, and by a whopping 40 percent maintaining America’s global leadership affairs budget. For since 2013. While China’s spending on is more important than ever. this, we pause and diplomacy grew by 40 percent, America’s Now is the time to lead from wher- give thanks— declined by 33 percent over the same ever you are and to demonstrate that the profound thanks. period, from $7.4 billion in 2013 to $4.9 trust placed in the Foreign Service will be Base fund- billion in 2018. repaid many times over in the results we ing for “ongoing For the first time in my 32-year For- achieve for the American people. I prom- operations,” the eign Service career, I am grappling with ised congressional appropriators that they budget line item whether we can maintain American diplo- could count on us to do that. n

Ambassador Barbara Stephenson is the president of the American Foreign Service Association.

THE FOREIGN SERVICE JOURNAL | MAY 2018 7 FOREIGN SERVICE

Editor in Chief, Director of Publications Shawn Dorman: [email protected] www.afsa.org Managing Editor Susan Brady Maitra: [email protected]

Associate Editor CONTACTS Donna Gorman: [email protected] AFSA Headquarters: BUSINESS DEPARTMENT Publications Coordinator (202) 338-4045; Fax (202) 338-6820 Director of Finance Dmitry Filipoff: [email protected] State Department AFSA Office: Femi Oshobukola: [email protected] (202) 647-8160; Fax (202) 647-0265 Controller Ad & Circulation Manager USAID AFSA Office: Kalpna Srimal: [email protected] Allan Saunders: [email protected] (202) 712-1941; Fax (202) 216-3710 Assistant Controller Art Director FCS AFSA Office: Cory Nishi: [email protected] Caryn Suko Smith (202) 482-9088; Fax (202) 482-9087 Administrative Assistant and Office Manager Advertising Intern Ana Lopez: [email protected] GOVERNING BOARD Chenxiao “Johnny” Liu: [email protected] President COMMUNICATIONS AND MEMBERSHIP Editorial Board Hon. Barbara Stephenson: Director of Communications and Membership Eric Green, Chair [email protected] Ásgeir Sigfússon: [email protected] James “Jim” Bever Secretary Online Communications Manager Angela Bond Hon. Tom Boyatt: [email protected] Jeff Lau: [email protected] M. Allyn Brooks-LaSure Treasurer Lawrence Casselle Outreach and Communications Specialist Hon. Earl Anthony “To ny ” Wayne: Shawn Kobb Allan Saunders: [email protected] [email protected] Alexis Ludwig Awards Coordinator John G. Rendeiro Jr. State Vice President Perri Green: [email protected] Priyadarshi “Pri” Sen Ken Kero-Mentz: [email protected] Retiree Outreach Coordinator Dinah Zeltser-Winant USAID Vice President Christine Miele: [email protected] Jeff Levine: [email protected] Retiree Counselor FCS Vice President Vacant THE MAGAZINE FOR FOREIGN AFFAIRS Daniel Crocker: [email protected] Member Accounts Specialist PROFESSIONALS FAS Vice President The Foreign Service Journal (ISSN 0146-3543), Ashley Dunn: [email protected] 2101 E Street NW, Washington, D.C. 20037-2990 is Kimberly Svec Sawatzki: [email protected] published monthly, with combined January-February Retiree Vice President LABOR MANAGEMENT and July-August issues, by the American Foreign Service John K. Naland: [email protected] General Counsel Association (AFSA), a private, nonprofit organization. State Representatives Material appearing herein represents the opinions of the Sharon Papp: [email protected] writers and does not necessarily represent the views of Lawrence Casselle Deputy General Counsel the Journal, the Editorial Board or AFSA. Writer queries Anne Coleman-Honn Raeka Safai: [email protected] and submissions are invited, preferably by email. The Josh Glazeroff Journal is not responsible for unsolicited manuscripts, Senior Staff Attorneys photos or illustrations. Advertising inquiries are invited. Martin McDowell Neera Parikh: [email protected] All advertising is subject to the publisher’s approval. Tricia Wingerter Zlatana Badrich: [email protected] AFSA reserves the right to reject advertising that is not USAID Representative Labor Management Counselor in keeping with its standards and objectives. The appear- Vacant ance of advertisements herein does not imply endorse- Colleen Fallon-Lenaghan: ment of goods or services offered. Opinions expressed in FCS Alternate Representative [email protected] advertisements are the views of the advertisers and do Matthew Hilgendorf Grievance Counselors not necessarily represent AFSA views or policy. Journal FAS Alternate Representative subscription: AFSA member–$20, included in annual Jason Snyder: [email protected] dues; student–$30; institution–$40; others–$50; Single Thom Wright Heather Townsend: [email protected] issue–$4.50. For foreign surface mail, add $18 per year; BBG Representative Senior Labor Management Advisor foreign airmail, $36 per year. Periodical postage paid Steve Herman James Yorke: [email protected] at Washington, D.C., and at additional mailing offices. APHIS Representative Indexed by the Public Affairs Information Services (PAIS). Labor Management Advisor J.J. Hurley Patrick Bradley: [email protected] Email: [email protected] Retiree Representatives USAID and FCS Staff Assistant Phone: (202) 338-4045 Hon. Alphonse ‘Al’ La Porta Christine Rose: [email protected] Fax: (202) 338-8244 Philip A. Shull Web: www.afsa.org/fsj PROFESSIONAL POLICY ISSUES © American Foreign Service Association, 2018 STAFF Director of Professional Policy Issues Chief Operating Officer Julie Nutter: [email protected] PRINTED IN THE U.S.A. Russ Capps: [email protected] Strategic Comunications Manager Postmaster: Send address changes to Chief of Strategic Initiatives David Bloom: [email protected] AFSA, Attn: Address Change Linnea Gavrilis: [email protected] Program Assistant 2101 E Street NW Special Assistant to the President Erika Bethmann: [email protected] Washington DC 20037-2990 Jennie Orloff: [email protected] Staff Assistant Theo Horn: [email protected]

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8 MAY 2018 | THE FOREIGN SERVICE JOURNAL LETTER FROM THE EDITOR

Whither Democracy?

BY SHAWN DORMAN

his month we examine the manship,” suggesting he should hasten a state of democracy in the transition process. Suharto stepped down world, a timely topic today on May 21. T as we consider the resilience In recognition of the 20th anniversary of our own democracy in the face of of Indonesia’s relatively successful experi- numerous challenges. ment with democracy, retired FSO Ed In her new book, Fascism, A Warn- McWilliams (my former boss in Jakarta), ing, former Secretary of State Madeleine offers a progress report. Albright sounds the alarm against a U.S. The focus section includes evalua- retreat from the world, noting that at a tions of the state of democracy in other time when authoritarianism is growing in regions. David Kramer, former president many countries, American leadership is of Freedom House, looks at a decade of “urgently required.” backsliding in Europe and Eurasia. USAID “I don’t see America as a victim,” FSO Alexi Panehal provides an overview Albright said on Fresh Air April 3. “I see of worrisome trends in Latin America. America as the most powerful country in USAID’s Assia Ivantcheva covers the the world that has a role to play, stand- field of electoral assistance.Also from ing up for democratic ideals and human USAID, Mariam Afrasiabi and Mardy rights across the board.” Shualy look at the how the United States That sentiment was certainly true 20 supports civil society in the face of “clos- years ago, when I was a junior political ing space.” officer at Embassy Jakarta with a portfolio Amb. (ret.) Jerry Feierstein evaluates including student and youth affairs. It was Saudi Arabia’s Vision 2030 plan for eco- spring 1998, and young Indonesians were nomic and social change, and journalist leading the “Reformasi” movement— Ben Barber shares his views on growing protesting the corruption, collusion authoritarianism in Southeast Asia. and nepotism of the 32-year repressive On the home front, former Senior Suharto regime and calling on the presi- Advisor to the Director General Alex dent to step down. They looked to the Karagiannis examines the state of U.S. United States for inspiration—we had the diplomatic capacity following the Rex Til- freedoms to which they aspired. lerson tenure, and offers suggestions for It was important for the United States the new Secretary. to be on the right side of that bold democ- FSO Phil Skotte speaks out about racy movement. On the critical role of cultural and language May 20, 1998, Sec. expertise. Also notable are the responses Albright said publicly to the March Speaking Out on the need that Pres. Suharto had for support for FS families with special an “opportunity for an needs kids, including a response from historic act of states- Medical Director Charles Rosenfarb. n

Shawn Dorman is the editor of The Foreign Service Journal.

THE FOREIGN SERVICE JOURNAL | MAY 2018 9 LETTERS

An International “Families with Special Needs Kids Need various department stakeholders, and Conversation Is Needed Support.” has asked for periodic input from I write in response to Senator Lindsey Since Maureen Danzot and I AFSA and the Foreign Graham’s call for a national conversa- co-authored a similar article Service Families with tion on U.S. foreign policy in the March in June 2016 to first ring the Disabilities Alliance. FSJ. alarm bell about deteriorating This indicates at least Because problems of the interna- State Department support recognition that there tional system are growing from day to for more than 1,000 Foreign are problems that must be day, American political elites should be Service families who have addressed. It remains to be aware of one thing: Even as a super- children with disabilities, seen whether this effort will power, the USA is not capable of solving the situation has, if any- result in significant positive the problems of the world by itself. thing, become worse. reforms, or will be limited to Heavily supported globalization has As Kathi Silva highlighted, over the minor fixes. For the former created global problems, and for the past several years policies and practices to occur, we expect that greater atten- first time in modern history the United regarding access to the Special Needs tion and engagement from more senior States needs true collaborators instead Education Allowance, burdensome and leadership in the department will be of strategic partners. Why? limiting bidding procedures and grow- required. The USA’s competitors, such as China ing medical clearance issues have all In the meantime, membership in the and Russia, are already very excited combined to increasingly limit oppor- FSFDA employee organization is grow- about the possibility of a power transi- tunities for a large number of Foreign ing. We encourage all those affected tion. But their reputation and their Service personnel in terms of where they by these issues to join so that we can lack of experience in world governance can serve overseas. This, in turn, leads be more effective in providing mutual do not offer a very bright future for to limitations on career advancement, support while speaking with a com- the international system. If the power more broken assignments and curtail- mon voice on issues of concern. Please transition occurs, the new world order ments, and increasing instances of contact me via State email if interested will be based on hard power and pure lengthy family separations. in becoming a member. militarization. The parallel cost to the State Depart- Mark R. Evans No country has the kind of soft power ment and other foreign affairs agen- Chair, Foreign Service Families gravitas the USA has. It is high time for cies is significant. Personnel are forced with Disabilities Alliance the United States to utilize its soft power to waste hundreds of hours jumping FSO to bring about democratic values and through unnecessary bureaucratic Embassy Stockholm peace for real. hoops, suffer from declining morale and Action speaks louder than words, and are increasingly unable to serve in areas Steadfastness in this conversation should be international. where their training and experience Public Service Yiğit Anil Güzelipek base could be utilized most effectively in When I was in the fire academy, dur- Assistant professor, Department of pushing forward U.S. policy interests. ing particularly hard stretches of physical Political Science and International Never mind the cost of addressing training, our captain used life-and-death Relations increasing numbers of Equal Employ- imagery to spur us on. Karamanoğlu Mehbetbey University ment Opportunity complaints and He painted the picture of an uncon- Karaman, Turkey grievances from affected employees who scious victim in the back bedroom of a have simply had enough with how they fully consumed house. Your air tank is Support for Special and their families are being treated. low, you cannot see your hand in front of Needs Kids There are some small glimmers of your face and the floor is getting spongy. Thank you to The Foreign Service hope. The State Department recently But you’ve got to get to the back bedroom! Journal for publishing Kathi Silva’s formed a Special Needs Education “If you quit on this training,” he said, excellent March Speaking Out column, Allowance Task Force, including all the “you will quit on a fire.”

10 MAY 2018 | THE FOREIGN SERVICE JOURNAL At State, we’re seeing people quit the you may find unacceptable, but almost department, many through retirement certainly will encounter: or the choice to seek other employment; 1. The pain never goes away. Never. but some who’ve left have taken the The death of a child is not the natural opportunity to publicly explain them- order of things; and the pain and grief selves in letters, editorials and videos. This are something that will help you recover, self-aggrandizing method of departure is but never forget. unacceptable, and should not be lauded. 2. Every parent grieves in a very Instead of releasing “honor-bound” personal, unique way. Grieving is not statements that feed a polarized media a competitive sport, and your terrible machine (some claimed “leaks,” but still trauma stands by itself—even in the face sought attention for themselves), why not of the Holocaust, wars and pestilence. praise the women and men, including 3. Blaming America’s flawed gun laws our Locally Employed staff, of the mis- is tempting, but largely fruitless. I tried sions you left behind? to join the National Rifle Association to They are the ones who continue to change our gun laws from inside. They protect American citizens, who facilitate would not accept my membership. Guns legitimate travel to the United States, who and hunting are as American as fathers promote U.S. business, and explain our and sons. policy and our people in every corner of 4. Memorials help, but are soon the world. You not only left them in the forgotten. Truly, candles should be lit back bedroom; you bragged about it. and songs sung; vigils and graveside ser- Public service is not easy. It requires vices held; and memorial plaques and a steadfastness that can withstand the nameplates erected. But they will all be political winds, even when they blow at largely forgotten—except by the parents hurricane strength. An organization that of murdered children. cannot count on its employees to hold 5. Yelling at politicians never hurts. together in difficult times is weak. Now that presidents as “Mourners in If your personal issues prevent you Chief” are part of America’s political/ from continuing to serve, fine. Don’t cultural landscape, by all means give make a spectacle of it on your way out. the president, Congress and the media John Fer a piece of your mind. But expect no FSO change. Embassy Riga 6. The death of a child often leads to a divorce of the parents. This is a sad After Parkland byproduct of the murder of a child. Per- The February massacre of 17 high haps some relationships are strength- school students and teachers in Park- ened by tragedy, but statistics show land, Florida, was painful for any of us otherwise. to contemplate. But as a former Foreign 7. A desire for revenge is a natural Service officer whose beloved daugh- consequence; but, over time, it may ter, Bessie, was murdered 25 years ago ineluctably transform into forgiveness. in Washington, D.C., I feel particularly If parents of murdered children suffer close to these grieving parents. forever, just consider the parents of the With that in mind, I offer the fol- shooter whose suffering is eternal. lowing 10 things I have learned that 8. The death penalty makes sense,

THE FOREIGN SERVICE JOURNAL | MAY 2018 11 until you force yourself—as I did—into thinking through the physical act of kill- ing the shooter with your bare hands. 9. You may see your child again in some angelic scenario. I have seen my beloved daughter Bessie twice. The first time was the day after her funeral: she was dressed in a flowing heavenly gown, comforting people at her grave. Another time she was in a surrealistic image done by a young Croatian painter who captured her as a child, suspended in space, with an uncertain smile on her lips and a tear in her eye. 10. There is something beyond our comprehension of an earthly existence, and angels are clearly a part of it. Wiser people than I have long suggested that “over there” or “on the other side” are places that are always there—if only we can be open to them. Thomas R. Hutson FSO, retired Omaha, Nebraska

Share Your Views The Journal welcomes your letters to the editor. Letters should be less than 550 words, and must include your name, connection to the Foreign Service (FSO, FSS, FS retiree, FS family member), and city or post of current residence. The Journal reserves the right to edit letters for space and clarity. n

Share your thoughts about this month’s issue.

Submit letters to the editor: [email protected]

12 MAY 2018 | THE FOREIGN SERVICE JOURNAL SPEAKING OUT

Families with Special Needs Kids Need Support LETTERS-PLUS BY KATHI SILVA

aising children in the Foreign inclusive and tele-therapy gains in popu- Service is a lot like gardening— larity, there are more options than ever ance’s suggestions were not answered we provide a rich environment before to address special needs overseas. and the number and types of complaints for our children with all the right R Thus, the challenges for families with were serious enough, AFSA got involved conditions and hope they will bloom. But by writing memos and attending meet as gardeners know, there is a lot of adapt special needs children overseas should be - - ings with MED to mediate parents’ ing and adjusting to whatever conditions increasingly manageable. complaints. may arise, and our plants don’t always Yet for the past couple of years the The State Department Office of Civil grow in ways we expect. experience of Foreign Service families Rights is addressing a complaint from a Good gardeners do what they can with special needs children has been the Foreign Service employee who argues to establish strong roots, provide a rich opposite. that some of MED’s current practices are environment of support for their growing disadvantaging Foreign Service members plants and create a plan and a system that Why Reduce Support? whose dependents have special needs. responds to unpredictable factors out of In the June 2016 Foreign Service This, he says, is a violation of the Ameri- their control. For families with special Journal, Maureen Danzot and Mark Response from MED— cans with Disabilities Act. The case is needs children, this system is even more Evans wrote an important Speaking Out likely to open the door to many similar important. column about the fact that parents were complaints. In recent years the number of children increasingly having a hard time access - On Oct. 29, 2017, a Washington Post in the United States diagnosed with spe- ing Special Needs Education Allowance article by Jackie Spinner, “State Depart cial needs is rising, and this trend is also (known as SNEA) funds and getting a say - ment support for diplomats with children Our Commitment to seen within the State Department. Until in the medical clearance options for their with disabilities is contracting,” brought a few years ago, thanks to a positive rela- children. Since then, there have been public attention to the issue. One month tionship with the Office of Medical Ser numerous actions on behalf of, and by, - later, Senators Ben Cardin (D-Md.) and vices (MED, now the Bureau of Medical disgruntled parents in an effort to resolve Patty Murray (D-Wash.) sent a letter to the Services) and the support and flexibility these concerns. State Department questioning the “trou- Foreign Service Families MED gave us to “grow our gardens,” the A parent advocacy group, the Foreign bling” plans to cut support for Foreign experience of raising a special needs child Service Families with Disabilities Alli- Service families with special needs chil- overseas was mostly a positive one. ance, was created in 2016 with the goal dren. Congress has also requested brief As international schools become more of providing a unified voice for families - dealing with MED issues. When the alli- ings from the State Department, and MED BY DR. CHARLES ROSENFARB, MEDICAL DIRECTOR, in particular, on special needs issues. Kathi Silva is married to a Foreign Service officer; they have served together in The disenfranchisement of Foreign Montevideo, Belgrade, Caracas, Pretoria, Paris and Washington, D.C. She has Service families by MED, and the seem- BUREAU OF MEDICAL SERVICES, DEPARTMENT OF STATE worked as a freelance editor, a USAID contractor and a Community Liaison ingly haphazard way it is handling clear - Office assistant at previous posts and is currently completing a master’s degree ances and educational allowances for our online. Kathi and her husband have three children, two of whom have led her special needs children, have gone public. into a new world of children with disabilities and given her more than 15 years of experience More people are aware of the problem, raising happy, resilient, special needs diplokids. but has anything changed? Not in the s a fellow Foreign Service par- lenging when a child’s health 26 direction families were hoping. MARCH 2018 | THE FOREIGN SERVICE JOURNAL ent, I couldn’t agree more with and well-being is involved. An Speaking Out March 2018 Kathi Silva (March Speaking adult may argue that they understand AOut) that the Foreign Service the dangers to their health if posted to a tions. As a physician, I was fortunate to provides a rich environment for our kids. medically austere location, and that they know a great deal about the nature of her Many FS children certainly do bloom— accept those risks. But what if the issue, for condition. But not having served before adapting, adjusting and developing in example, is a family with a child who is two at the locations I was bidding on and not unique and wonderful ways that we could years behind in school potentially being knowing anything about the quality of the only have dreamed of when we began our posted to a country with limited services? local care at those posts, I realized I was in careers. I can think of few things more heartbreak- no position to make an informed decision As the director of the Bureau of Medi- ing than to see a child fall further behind about where my own child’s health care cal Services, I can say unequivocally that in their development, or to have a family needs could be safely met. As a parent, the entire MED team takes our mission to curtail after a few weeks at post because I felt fortunate that I could rely on the “safeguard and promote the health and the needs of their child could not be met. knowledge and expertise of the staff in well-being of America’s diplomatic com- Our system is designed to prevent MED’s Office of Medical Clearances. munity and their family members” very families having to face those situations. Like any bureaucracy, MED can do seriously. The department provides more than 1,000 better. We can—and will—redouble our MED personnel, both in Health Units Special Needs Educational Allowances efforts at communicating proactively and overseas and our offices here in Wash- each year to ensure that families receive in as timely a manner as possible. We will ington, work very hard to learn as much the services and support they need. Yet in do more to ensure that our policies and as they can about the availability of local our efforts to avoid outcomes potentially practices are transparent and remain con- health resources at all posts, continually harmful to children we sometimes end sistent as staff change. And we will reaf- reassessing their quality on the basis of up at odds with parents facing difficult firm our commitment to fostering a fully feedback from patients and host-country choices. One of the toughest tasks for any collaborative partnership with patients professional colleagues. health care practitioner is sharing hard and families alike. At the same time, we strive to fully truths with patients, especially ones that We also pledge to our patients and understand and appreciate each of our may significantly affect their lives. Patients the department that we will continue to patients’ unique health needs prior to sometimes fundamentally disagree with advocate very strongly on behalf of all FS and during their time overseas. Our goals, their assessments. But in MED we do our children, and that we will assure to the of course, are to ensure that those needs best to explain why we feel our adminis- best of our abilities that those kids have can be met at the assigned mission and trative decisions are appropriate for each access to the high-quality health and that the department, as an employer, affected family. educational services they require to fully does what it can to reduce the health risks The daughter I helped raise over the flower and grow. As medical professionals employees and family members face in course of three overseas tours didn’t have first and foremost, advancing the physical postings where access to quality medical special educational needs. She did, how- and mental health of our employees and care may be very limited or nonexistent. ever, have a medical issue that could have family members will always be our singu- Meeting our goals is especially chal- had physical consequences and complica- lar motivation. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 13 TALKING POINTS

Former Diplomats The letter expressed concern about the a robust international engagement with to Congress: Restore more than 50 ambassadorial posts that allies and dialogue across the board, to Power and Influence remain unfilled, as well as the 16 of 22 achieve whatever policy ends up being.” of U.S. Diplomacy unfilled assistant secretary positions. The ore than 200 former U.S. ambassa- signatories recommended that Pompeo More U.S. Diplomats Mdors and other high-level diplo- be asked about his plans for “ending the Expelled from Russia mats wrote a letter to Senator Bob Corker very damaging hiring freeze, and his ideas n March 29, the Russian Foreign (R-Tenn.), the Republican chairman of the on how the State Department should be OMinistry announced that it would Senate Foreign Relations Committee, and held accountable for meeting clear met- expel 150 Western diplomats, including 60 Senator Robert Menendez (D-N.J.), the rics for diplomatic readiness to include Americans, in retaliation for the expulsion ranking member of the committee. staffing levels and competent training at of 150 Russians from nearly two dozen The March 21 letter asked the sena- each rank of the career services.” countries in the wake of the Kremlin’s tors and their colleagues to use Mike They also suggested the senators ask alleged role in the poisoning of a former Pompeo’s confirmation hearing for the Pompeo about his commitment to con- Russian spy and his daughter in England. job of Secretary of State as an opportu- gressional oversight to “assess diplomatic Russia also announced that the U.S. Con- nity to “focus public attention on the readiness, priorities and resource needs.” sulate General St. Petersburg would close. urgent need to restore the power and Amb. (ret.) William Burns told the The Russians declared 58 diplomats in influence of American diplomacy.” Washington Post that the letter was a Moscow and two at the consulate in Ekat- The letter was signed by those who product of the signatories’ “profound erinburg to be persona non grata; all were have served both Republican and concern about the broad attitude of dis- required to leave the country by April 5. Democratic administrations, including missiveness to diplomacy, the marginal- The move is the latest in an ongoing many Career Ambassadors such as ization of professional diplomats and the series of diplomatic spats with Moscow. In William Burns, Ruth Davis, Elizabeth corrosion of the institution.” July 2017, after the U.S. Congress imposed a Jones, Thomas Pickering, Nicholas Burns “The letter itself is not advocating new round of sanctions, Russia cut the U.S. and J. Stapleton Roy. They urged the any policy position,” added Amb. (ret.) presence in Russia by 755 people, including senators to support four main elements Nancy McEldowney. “It’s advocating for both diplomats and locally engaged staff. needed to get American diplomacy back on solid footing: policy leadership, 50 Years Ago resources, staffing and oversight. The former diplomats implored the Humphrey Stars in Rivkin-Harriman Awards Ceremony administration not to retreat from global engagement, which they call a “strategic ubert Hubert Humphrey swept the Foreign Service into tool” to protect our country. “Without Hhis abrazo of ebullient optimism and sketched out the an engaged diplomatic component of role of America’s diplomats in an all-but-explicit campaign national power, we weaken our alli- canvas entitled “The Rising Sun of American Promise.” ances, lose credibility in the eyes of both The Vice President of the United States was address- our partners and our adversaries and ing the first annual awards luncheon of the American increase the likelihood of unnecessary Foreign Service Association on April 18. He presented and costly wars,” they wrote. the $1,000 Rivkin and $1,000 Harriman Awards to two The diplomats requested that senators officers of the Foreign Service whom the vice president ask Secretary-designate Pompeo to give his identified with “the humanitarian generation” of American life today. views on U.S. global engagement and also … He saw the Foreign Service families’ devotion to teaching people around the present “his vision for adequately funding world how to share and how to give as representing the truest aspirations of the diplomacy required to promote and American life. protect America’s sovereignty, security and —Excerpted from a news article of the same title in the May 1968 FSJ. prosperity” during the hearing.

14 MAY 2018 | THE FOREIGN SERVICE JOURNAL SITE OF THE MONTH: MAPPING THE STATE OF THE WORLD

aps can help us make sense of a confusing world, map. Its June Mand this month we showcase three interactive maps 2017 report, on useful websites that show different ways to view the “Civic Space in world. the Americas,” “Freedom in the World” is Freedom House’s flagship examines people’s right to organize, speak out and take annual report, assessing the condition of political rights action country by country. While civic space in the Americas and civil liberties around the world. Published since 1973, is more open than in some other regions of the world, CIVI- it ranks the state of freedom by population and by country, CUS found that it is still seriously restricted in more than a with supporting texts for 195 countries and 14 territories. third of the region’s countries. This year’s report shows that 71 countries “suffered net And for yet another way to “map” the world, look to the declines in political rights and civil liberties, with only 35 Matador Network’s depiction of cost of living around the registering gains.” The report also shows “an accelerating world. Map enthusiasts may find a way to connect levels of decline” in U.S. political rights and civil liberties. freedom or restrictions on civic space with the cost of living CIVICUS, which bills itself as “a global alliance of civil in a particular country. Of course, those of you thinking about society organizations and activists,” monitors the state of next year’s bids may also find this last map intriguing from a civil society around the world and reflects its findings on a purely self-interested point of view.

A farewell video made by several of the Americans from Havana, all of whom Don’t End the Iran Deal departing diplomats was shared widely complained of unexplained headaches, n March more than 100 U.S. national online, as was a blog post, written by Anne dizziness, hearing loss and other medical Isecurity experts, including nearly 50 Godfrey, the spouse of the current deputy problems—their symptoms were blamed retired military officers and more than 30 chief of mission in Moscow. on some type of “sonic attack.” former ambassadors, wrote a letter to the “Those of us left behind will stay tough In October, with no answer to the president urging him to remain in the Iran and keep the mission going,” says Godfrey. mystery in sight, the department ordered nuclear deal. “Last week we rallied around our friends all non-essential staff and family members The president set a May 12 deadline— and did what we could to help them meet to leave post. the date by which he has to either waive the deadline for departure. Next week, the By law, the department was required to sanctions against Iran or leave the deal— halls of a building emptied of some of the revisit the decision within six months and for the United States and its allies to agree finest people I have the privilege of know- either send the diplomats back to post or on changes to address what he calls flaws ing, will be walked by some of the finest make the cuts permanent. Former Secre- in the deal. people I have the privilege of knowing. tary of State Rex Tillerson signed off on the The letter, from a group called the And we will pick up the pieces, carry on plan to permanently reduce staffing. National Coalition to Prevent an Iranian the work and continue to live here in this According to an April 2 report in the Nuclear Weapon, states that maintaining sometimes gloomy, but ever vibrant and Daily Beast, researchers at the University the U.S commitment to the Iran nuclear enigmatic city.” of Michigan say the problem could have deal “will bring substantial benefits and been caused if a pair of eavesdropping strengthen America’s hand in dealing State Makes Cuba devices were accidentally placed too with North Korea, as well as Iran, and Staffing Cuts Permanent close together in a home or hotel room, help maintain the reliability of America’s n March 2 the State Department triggering a painful, high-pitched tone. word and influence as a world leader,” Oannounced that it would make the The researchers submittedtheir findings while “ditching it would serve no national staffing cuts put in place last October at to the State Department, but told the security purpose.” U.S. Embassy Havana permanent. Daily Beast that they had not received a Signatories include well-known former Last September, State recalled 21 response. State Department officials such as FSO

THE FOREIGN SERVICE JOURNAL | MAY 2018 15 Thomas Countryman, who had served as assistant secretary of State for international Contemporary Quote security and nonproliferation; Ambas- I have met hundreds of State Department employees. I know them. And sador (ret.) Ryan Crocker, ambassador to in the past few weeks I have had a chance to meet dozens and dozens Afghanistan, Iraq, Pakistan, Syria, Kuwait more. To a person they expressed to me their hope to be empowered in their and Lebanon; Ambassador (ret.) Thomas roles and to have a clear understanding of the president’s mission. That will be my first priority. They’ve also shared how demoralizing it is to have some vacan- Pickering, undersecretary of State for cies and, frankly, not to feel relevant. I will do my part to end those vacancies; political affairs and ambassador to Israel, I will need your [Congress’] help. And I will work every day to provide dedicated Russia, India, El Salvador, Nigeria, Jordan leadership and convey my faith in their work, their professionalism. and the United Nations; and Ambassador (ret.) Patrick F. Kennedy, undersecretary of —Mike Pompeo, nominee for Secretary of State, during his confirmation hearing before State for management. the Senate Foreign Relations Committee on April 12. Military officers who signed the letter include U.S. Air Force Lieutenant General (ret.) James Clapper, a former director of tions Richard Lugar (R-Ind.) also signed Joint Chiefs of Staff Chairman General national intelligence, and USAF General the letter, as did former Senator and Joseph Dunford, who have advised the (ret.) Michael Hayden, a former director Chairman of the Senate Committee on administration to remain in the deal. n of the National Security Agency and the Armed Services Sam Nunn (D-Ga.). Central Intelligence Agency. Those named here join a small group This edition of Talking Points was Former Senator and Chairman of the of administration officials, including compiled by Donna Gorman, Shawn Senate Committee on Foreign Rela- Defense Secretary James Mattis and Dorman and Susan Maitra.

There has long been bipartisan consensus in that country. So a reduction of their abilities that our country is safer, stronger and more Heard on would not be positive. prosperous when America leads. As conflicts the Hill —General Curtis Scaparrotti, Commander of destabilize regions and threaten the lives of EUCOM, at a hearing of the Senate Committee on millions around the world, American global Armed Services on March 8. leadership is needed now more than ever before—not only to save lives abroad, but to Our country’s standing in the world has been keep us safe here at home. Remaining a force on the decline over the past decade or more, for good in the world takes a fully funded, and that certainly continues. Throughout the fully staffed State Department and develop- 20th century, our allies viewed the United ment agencies. States as a reliable partner and a source of —Representative David Price (D-N.C.), stability, a friend whose ideals and leader- at a meeting with Raleigh business and ship made our world a better place. Unfor-

community leaders on March 27. JOSH tunately today we are not counted on as we once were. The chasm between what our leaders say and Everything we do in EUCOM [U.S. European Command], we the actions that they take can have a devastating impact. … look at it as an interagency activity. Generally with State in In order to execute foreign policy effectively, the Secretary the lead, as diplomacy leads, is the way that we work here in must have a fully functional department behind him. a democracy. So everything I do, we look at from a whole-of- —Senator Bob Corker (R-Ky.), chairman of the Senate government approach. And in each country, our objective is to Foreign Relations Committee, from his statement opening the support the ambassador and the ambassador’s country team Pompeo confirmation hearing on April 12.

16 MAY 2018 | THE FOREIGN SERVICE JOURNAL SPEAKING OUT

What the State Department Should Bring to the Table: Cultural and Language Expertise

BY PHIL SKOTTE

hen I served in Moscow mon. All of them knew the language and But when I tried the same thing years I met with the head of culture of their assigned countries very later in Hong Kong, the Chinese staff was Russia’s consular affairs well, and brought a high level of cultural subdued and even disappointed. A senior Wbureau. I have forgotten his and linguistic expertise to their tasks. staff member came to my desk afterward name, but will never forget what he told and told me that they were all unhappy me about his career path. A Good Deal for Taxpayers because they had “used up” their luck for He said that he had served with the During my 25 years in the Depart- the year on mere pens. Now they prob- Russian Ministry of Foreign Affairs for 21 ment of State I have noticed that many ably could not win the lottery. years, and that 17 of them had been in other foreign ministries have a similar A better informed and more culturally Pyongyang. About his Korean-language approach. These foreign ministries rec- astute officer would not have made this skills, he said that if he was on the phone, ognize that their interests are best served error. Of course, ruining a holiday party Koreans thought he was Korean—he had by developing diplomatic expertise and dashing lottery hopes are relatively no accent at all. over long years in similar cultural and minor costs to bear. But imagine errors At the Russian Foreign Ministry, all linguistic environments. The taxpayers that ruin trade negotiations or even my interlocutors spoke wonderful Eng- in these countries get a pretty good deal peace talks. Imagine a poor relationship lish and knew America well. All of them on language training when their diplo- with host-government officials when a had been identified early in their careers mats return again and again to the same plane goes down and we need to identify as America experts, or at least English- language environments. our citizens in a hospital or morgue. speakers, and were put on career tracks Unless you have lived overseas for Imagine higher stakes than pens and that led to considerable time in North long periods, you might not understand calendars. America. We always conversed in Eng- why language and cultural awareness And realize that cultural and linguistic lish, because their English was far better are so vital, and why they take so long to expertise are not built overnight, much than my Russian. learn. To give a simple example, when I less online. With apologies to the experts No doubt the Russian diplomat who served in Manila we collected little gifts who claim you can learn Hebrew in served 17 years in Pyongyang had a more (pens, calendars, wine, etc.) and gave three weeks, real linguistic and cultural difficult career than the diplomats who them to our local staff in a Christmas expertise grow like vegetables, slowly and served in New York, Washington and drawing. The holiday party was fun, and imperceptibly over a long period. Miami, but they all had one thing in com- the staff left in a festive mood. A Modest Proposal FSO Phil Skotte currently serves as the Bureau of Consular Affairs liaison with Before moving to a modest proposal the intelligence community. He joined the Foreign Service in 1993 and has to deepen the cultural and linguistic served previously in Manila, the Vatican, Hong Kong, Budapest and Moscow. expertise of the Department of State, let His domestic assignments include work as a foreign policy adviser for special me paint a contrast to the career path operations at the Pentagon and director of American Citizen Services world- of the Russian friend I introduced in the wide. Prior to joining the Foreign Service, he worked as a commercial fisherman in Alaska, a first paragraph. schoolteacher, an athletic director and a ship’s carpenter. The views expressed in this article are An American Foreign Service officer those of the author and not necessarily those of the U.S. government. starts his career with some high school

THE FOREIGN SERVICE JOURNAL | MAY 2018 17 Unless you have lived overseas for long In the recent assignment cycle he bid on an Italian job and a Hungarian job, periods, you might not understand why but received neither. Instead, the State language and cultural awareness are so Department assigned him to Shanghai vital, and why they take so long to learn. via (you guessed it) one year of Chinese- language training. I am this officer. My modest proposal is to move us around less, and incentivize us or force us (Pyongyang, anybody?) to concentrate on fewer areas and languages. Instead Spanish. The State Department, for what- months on its language investment. After of the current helter-skelter approach ever reason, decides not to build on that Budapest, it gives him a year of Russian to assignments, develop a system that existing foundation. Instead, it teaches and assigns him to Moscow for two years. truly enables the State Department to him Italian for six months and sends him Staying for four, he doubles their invest- bring cultural and linguistic expertise to to the Vatican for two years. ment return. the table. When we do this right, we are Years later State gives him a year of Now, after six years in English-speak- outstanding and are a huge asset to the Hungarian and assigns him to Buda- ing America, this officer is not conversant United States. pest for three years. He stays an extra in any of the four languages he learned at How do I know? Because there are year, giving the department an extra 12 great expense to taxpayers. many examples, current and historical, of Foreign Service officers who brought this expertise to bear to America’s benefit. We used to have more “China hands” and “Russia hands”—people who could be counted on to know their own country and the country in which they served. In retrospect, I wish that my career had looked more like theirs. For various reasons—some of my own making, and others due to a system not organized to value long service in a few places—I have a little Russian, a little Hungarian, some rusty Italian and some even older Span- ish. Let’s not even talk about Chinese. We can do far better, and at lower cost. We can strengthen the State Department, better promote our national interest and give the taxpayers more value for their language training dollar. n

18 MAY 2018 | THE FOREIGN SERVICE JOURNAL COVER STORY

Straight Talk on Diplomatic Capacity

Lessons learned from the resident Donald Trump’s firing of Tillerson tenure can help the Secretary of State Rex Tillerson and new Secretary of State enhance intention to nominate CIA Director Mike Pompeo as his replacement could have the State Department’s core profound implications for the reforms diplomatic and national that Secretary Tillerson initiated at the security mission. State Department. What will not change is the fact that State employees, includ- BY ALEX KARAGIANNIS ing career members of the U.S. Foreign Service, are eager for serious, sober and substantial reforms that Pwill enhance the effectiveness of the State Department’s capacity to carry out its core diplomatic and national security mission. Tillerson’s “redesign” initiatives were ill-equipped to do that; they front-loaded staff and budget cuts rather than determining strategic priorities, strengthening capabilities and building advan- tages. The now-common sport of analyzing the damage done to the State Department during the past 16 months understates the problem. It’s worse when examining hard data in historical context. The new Secretary can take simple but consequential steps that boost State’s ability to drive and execute policy and deliver results for the United States. Here are my suggestions:

Alex Karagiannis retired from the Foreign Service in November 2017 with the rank of Minister Coun- selor. He last served as Senior Advisor to the Director General of the Foreign Service and Director of Human Resources in 2017.

THE FOREIGN SERVICE JOURNAL | MAY 2018 19 ■ Draw on the talents of State’s professionals. They are as Viewing the Deconstruction capable, determined and mission-driven as their colleagues at the In 1969 Dean Acheson published his seminal, Pulitzer prize- Central Intelligence Agency, the Department of Defense and other winning book, Present at the Creation. It covered the extraordinary national security agencies. time in the late 1940s when clear-eyed, hard-headed, tough- ■ Fill under secretary, assistant secretary and ambassador posi- minded Americans reshaped the world, creating new organiza- tions on the basis of qualifications. Judgment, initiative, curiosity tions and institutions to establish a stable system of international and experience count; amateurism has consequences. relations. Seared by the events of the 1930s and 1940s—world ■ Establish strategic priorities: sustain the budget, suspend the economic stagnation/depression, ethno-nationalist jingoism, hiring freeze and hire to at least attrition until results are in. fascism, authoritarianism, totalitarianism, civil wars, foreign ■ Create investment funds for human capital training and aggressions and a global conflagration in which America fought a development and a new information technology architecture; two-front war—they were determined to found a new economic, these are multiyear outlays that need dedicated long-term political and security architecture. resources. Through it, for the next 70 years the United States led the world ■ Staff and empower a change management team that will in extending liberty, democracy, prosperity and justice; drew in oversee and implement the back-office reforms now underway; allies and partners; and created conditions for peace and human devise solutions to structural and systemic rigidities, anomalies dignity unparalleled in human history. and misalignments; and communicate continuously with employ- Today it appears to many that the Trump administration ees and stakeholders. is equally determined to deconstruct that system—as it looks

20 MAY 2018 | THE FOREIGN SERVICE JOURNAL inward and focuses on the tactical and transactional, oblivious to have little trust in or time for the career professionals, disposing of opportunity for the transformational. Central to this effort, Office many gracelessly. His chief of staff and deputy chief of staff were of Management and Budget Director Mick Mulvaney started the national security novices, more adept at micromanaging than budget process by proposing to slash the State Department’s leadership. Morale plunged, and the department was seemingly Fiscal Year 2018 budget by 31 percent. Then, in February 2018, he adrift, as amply chronicled in many academic, think-tank and tabled State’s FY2019 budget with a new 23 percent cut from the media analyses. FY2017 enacted levels. Secretary Tillerson initially resisted but then acquiesced in the Although Congress signaled—and acted on—its opposition to 31 percent cut submitted by OMB for the FY18 budget. Though the administration’s proposed budget for State, that posture alone that budget went nowhere on the Hill, he demanded commen- will not displace a national security policy that sidelines diplo- surate workforce reductions, only grudgingly scaling them back macy. America today faces an international environment that is even though State’s total staff numbers would barely amount volatile, dangerous and complex. Its adversaries are aggressive to a rounding error at the federal level. State accounts for just 1 and capable; nonstate actors are numerous and lethal; regional percent of executive branch civilian employees and only 1 percent and transregional threats are growing more sinister; and ideologi- of the federal budget (see chart on p. 20). The federal government cal movements are increasingly pernicious and inimical to demo- spends nearly as much on Lockheed Martin as on State, according cratic interests. A strong, capable State Department would bolster to a Feb. 16 Washington Post analysis. other instruments of national power and offer a broader spectrum Tillerson also extended the president’s temporary hiring in which to operate. restrictions indefinitely and applied them even to eligible family Trump’s plan to boost defense spending while slashing State’s members, disrupting operations at overseas posts and under- diplomatic capacity (resources and people through a 23 percent mining productivity and morale. He insisted his staff review all cut in the overall budget, with a 26 percent reduction in opera- exemptions, prompting a blizzard of paperwork that elevated tional funds) faces a problem. However much it is necessary, routine tasks to Secretarial level. defense spending will take years to increase readiness (e.g., by Further, he pushed a “Redesign” (later rebranded “The Impact producing more planes, ships and missiles). Moreover, it is ill- Initiative,” or TII) intended to reshape the State Department, hir- suited for pressing current challenges. Russian cyber-meddling, ing two outside consultancies to facilitate an ostensibly employee- refugee flows, humanitarian crises, disease outbreaks, lagging exports and invest- ments, and trade disputes do not easily lend themselves to military solutions. Rather, they require active, preventative and long-term, front-line diplomatic engagement.

Targeting Staff When Rex Tillerson arrived at State, employees welcomed him, hopeful his private-sector experience would help strengthen the department. These hopes were off the mark. Tillerson had a rocky tenure; he did not establish a close work- ing relationship with Trump, or with his 535-member board of directors (aka Con- gress), or with domestic constituencies and stakeholders. Unable to get his personnel choices past the White House, he had a very spare bench of confirmed under secretaries and assistant secretaries. And he appeared to

THE FOREIGN SERVICE JOURNAL | MAY 2018 21 run process. The consultancies labored under shifting direction staff grew by just 42 percent (2 percent on an annual basis), even and leadership, with “work streams” that were more siloed and as their responsibilities and overseas deployments to dangerous stove-piped than integrated teams. postings increased. Rather than accelerate reforms, the process sidelined and At any given time, two-thirds of the Foreign Service is overseas, stalled initiatives by the bureaus of Human Resources and serving in more than 270 embassies and consulates. In dozens of Information Resource Management and other bureaus that were posts, other agencies outnumber State Department personnel. already underway. From a change management perspective, Tillerson’s team heeded none of the experts in establishing a Running into Facts clear vision, ideal end state, timelines, champions or a coherent The focus on budget cuts and workforce reductions also ran communications strategy. The changes prioritized back-office, into stubborn facts. The proposed 31 percent budget cut for FY18 legacy and operational matters (all of which must, of course, be could not produce commensurate workforce savings. Five bureaus addressed), but did so without first establishing strategic priorities comprising 5 percent of the workforce accounted for 80 percent of and strengthening core functions and responsibilities. the funds to be reduced (assistance, contributions to international agencies, exchanges). Even eliminating those bureaus entirely Déjà Vu All Over Again would yield only a 5 percent staff reduction. By focusing first on workforce numbers rather than strategic Tillerson eventually settled for an 8 percent total workforce purpose, the initial actions began gutting the State Department reduction of U.S. direct-hire personnel by the end of September of professionals with the experience, knowledge and judgment 2018. That number was arrived at only after more draconian to articulate and execute policy and get results. Ignoring Govern- reductions (on the order of 15 percent or more) were shelved ment Accountability Office reports of the 1990s and mid-2000s because they would have required a costly and protracted reduc- that had sounded the alarm concerning the deleterious effects tion-in-force exercise. The 8 percent downsizing was predicated of staffing gaps and deficits at State, Tillerson and his advisers on attrition, incentivized attrition (buyouts) and reduced intake. insisted on drastic cuts. For FY17, intake was capped at 77 percent of attrition for the In doing so, they flew in the face of history. Following the Foreign Service (the actual number was lower); for FY18, the cap dissolution of the USSR and Yugoslavia, State had staffed 19 new was 40 percent of attrition. For the Civil Service, it was worse: zero embassies with existing personnel and flat budgets. That was fol- hiring in FY17; and 25 percent of attrition in FY18. lowed by the Clinton-Gore “Reinvention of Government” exercise Because the Foreign Service brings in new employees in that saw steep budget and staffing cuts, and then the disbanding cohorts, reduced hiring has a generational impact, exacerbat- of the Arms Control and Disamament Agency and the merger into ing the types of deficits that GAO had previously identified. For State of the U.S. Information Agency, engineered by Senator Jesse the Civil Service, in particular, it means a collapse of expertise Helms. That exercise brought 2,100 employees into State without in key bureaus. No process improvements, which are geared to funding for their integration, but did not constitute a net gain in back-office functions, will make up for the resulting policy and Foreign Service personnel. operational shortfalls. After 9/11, the department moved to expeditionary and trans- When defending staffing numbers Tillerson’s staff often formative diplomacy, staffing two mega-missions in Afghanistan pointed to the fact that the State Department employs 75,000 and Iraq through volunteers, while drawing down elsewhere to worldwide, suggesting its workforce is huge. But 50,000 of those meet those needs. Secretaries of State Colin Powell and Hill- employees are local nationals, the majority of whom perform ary Clinton took action to address GAO concerns, and with the security work (approximately 37,000), initial visa screening and backing of Presidents George W. Bush and Barack Obama and other essential internal operational activities that support several Congress’ approved budgets, State hired new personnel to close dozen other federal agencies at overseas missions. Those local staffing deficits. But State’s post-9/11 growth was highly uneven. employees were never part of the reduction exercise—that exer- To cite just a few prominent examples, since 1995 Diplomatic cise was targeted at the 24,775 U.S. direct-hire Foreign and Civil Security Bureau personnel increased by nearly 200 percent; con- Service personnel on the rolls as of Jan. 31, 2017. sular personnel (processing visas for foreigners and passports for To hit the mark of 1,982 fewer employees and account for mini- U.S. citizens) grew by more than 160 percent; and other specializa- mal (well below attrition) hiring, approximately 2,300 employees tions grew by more than 100 percent. In contrast, core diplomatic would need to leave the rolls—a huge and disruptive churn. Even

22 MAY 2018 | THE FOREIGN SERVICE JOURNAL worse, the Tillerson plan failed to address structural and systemic anomalies. For exam- ple, approximately 67 percent of the Foreign Service serves overseas at any given time. But more than 50 percent of DS agents serve stateside, even as the threats and risks to U.S. personnel and facilities are abroad. DS agents have now edged out political officers as the largest cohort in State. They exceed by 500 each the economic, public diplomacy and consular officer cadres, and number close to 900 more than management officers. This can hardly be characterized as an optimal mix. Moreover, five bureaus (led by Consular Affairs and Diplomatic Security) account for 70 percent of Civil Service positions. Their hiring, which is given priority under the staff- ing exercise as those bureaus have deficits, automatically means that the needs of other bureaus in the State a slow, gradual retrenchment, now dramatically accelerated. No Department may be nearly shut out—whether in arms control, efficiency improvements will substitute for or translate into diplo- non-proliferation, sanctions enforcement, trade promotion, civil matic acumen, capabilities or clout in the policy arena at home or aviation, energy, human rights or a host of other critical areas. abroad. Tillerson and his senior team downplayed the loss of senior In looking closely at the president’s FY19 budget request, sev- leaders and career ambassadors. It is normal to see retirements eral warning signs pop out, as the Brookings Institution noted in at those ranks. What is unusual is that so many were forced out a Feb. 13 report by Thomas M. Hill, “What Trump’s Budget Means at one time—a precipitous decline when contrasted to the many for the State Department—Snap Judgments.” First, OMB manipu- vacancies at the assistant secretary level and many posts lacking lated various funding accounts to disguise de facto cuts. ambassadors. Second, it both sliced the Overseas Contingency Operations account and shifted it into State’s base operational account. Budget Reality That could be a sensible solution because it requires State (and Though Tillerson and his staff claimed that State’s budget was Congress) to deal with normal operations, not indefinite special unsustainable, they offered no empirical evidence in support circumstances. But it does not change anything on the ground. and made no business case why drastic retrenchment in budget State still needs to spend huge funds in Afghanistan, Iraq and and personnel was necessary. The department has yet to put other conflict areas for ongoing operations; none of those funds budget figures into context, either historically or in comparison are easily reprogrammed to address needed structural reforms or to national security spending overall. In fact, State’s budget has develop a future workforce for new challenges. declined since 2008. Third, it cleverly (some say deviously) shifts monies between The operational budget for core diplomacy functions (the programmatic and operational accounts, making both targets Diplomatic and Consular Programs account) has been on a for future cost-cutting exercises when the programs are found downward slope since 2010, even as requirements grew. Budget “ineffective” or “duplicative” and the workforce must be reshaped growth came in the form of separate outlays for security, embassy (downsized) for the sake of efficiency. construction and other administrative functions. Funding for And fourth, while everyone recognizes that State requires diplomacy shrank, both in nominal and inflation-adjusted terms, a massive IT upgrade and modernization—with a whole new severely straining capacity to advance America’s national security, architecture and state-of-the-art, secure data management, data economic and trade interests. visualization and messaging systems—there are no new dedicated Juxtaposition of the budget and staffing numbers clearly shows funds for that. Rather, it appears that monies are reprogrammed,

THE FOREIGN SERVICE JOURNAL | MAY 2018 23 Fewer employees and lower Moreover, by itself this budget does not address State’s and budgets rarely produce great diplomacy’s marginalization as an instrument of U.S. leadership. results in a diplomatic arena An Uncertain Future All of this has had a predictable, debilitating effect on the State where intractable problems Department and its employees, who have long wanted con- bedevil policymakers and structive change. Indeed, the professionals at State had already launched numerous reform initiatives to strengthen the depart- initiative, judgment and ment; many were stalled as the focus shifted to the “Redesign/ TII.” To cite only a few projects already underway: a new IT expertise are at a premium. architecture (including email and messaging systems; data hygiene, migration, integrity and visualization); new performance management systems for both the Foreign and Civil Service; new tapped from the Bureau of Consular Affairs’ fee-generated rev- assignment and deployment patterns for the Foreign Service, enues for departmentwide IT needs. In short, the FY19 budget with streamlined referral/vetting procedures; increased empha- proposal is a shell game of robbing Peter to pay Paul. sis on talent acquisition and diversity and inclusion programs; Moreover, State’s payroll costs are less than 10 percent of its enhanced professional and leadership development training, total budget, a budget that also supports physical and virtual pres- better coaching and mentorship programs; rationalized bureaus, ence to expand U.S. influence even where programs are declining. deputy assistant secretary positions and special envoys; and State provides a security and administrative platform overseas for expanded and enhanced shared service models. more than 30 other U.S. government agencies, many of which have These internal reforms were all designed to fuel performance increased their overseas footprint and need for services that State and productivity by reducing internal clutter and complexity and provides. Cutting State’s budget would have wide repercussions. focusing on external goal delivery. All took a back seat during the Three conclusions about the administration's budget propos- extended hiring freeze and workforce reduction exercise. In short, als were painfully obvious: The Trump administration looked State lost time and momentum. Instead it devotes staff power to ignore Congress, which favors healthier funding for State; if to the “FOIA surge” (whittling down the backlog of Freedom of enacted, the budget would make State more a support service Information requests), widely perceived as an exercise to drive for other agencies than a strong diplomatic agent; and it would people out by displacing them to tasks incommensurate with generate a diplomatic void that Russia, China and other adversar- their diplomatic skills and experience, while higher priority ies will gladly exploit. national security objectives are underserved. In March Congress passed and President Trump signed an The stated objective of the TII is to “improve efficiency, effec- omnibus spending bill. It calls, inter alia, for the State Depart- tiveness and accountability” and to give staff more fulfilling and ment’s Inspector General to review the “Redesign” to ensure it rewarding careers. Surveys have consistently shown that employ- used proper processes and included employee input. State is also ees are “fulfilled” when given responsibility to carry out well- required to report to Congress on actions it took in response to articulated policy in furtherance of U.S. national security. Instead, Trump’s reorganization directive to all federal cabinet agencies Sec. Tillerson walled himself off from employees and embarked and subsequent guidance from the Office of Management and on an exercise that degraded rather than boosted operational and Budget. Congress further noted that it expects State to maintain FS diplomatic capacity. Fewer employees and lower budgets rarely and CS staff levels on board as of Dec. 31, 2017. produce great results in a diplomatic arena where intractable Under this budget, State avoids the most deleterious conse- problems bedevil policymakers and initiative, judgment and quences of painful cuts, but is far from being put on an upward expertise are at a premium. trajectory in building diplomatic capacity for the future. It is still A more strategic approach would be to aim for responsibil- necessary to address structural rigidities, anomalies and misalign- ity (empowering people and rewarding initiative and judgment); ments. And it is essential to redress systemic underinvestment effectiveness (defining and successfully driving policy outcomes in people (the entire human capital development life cycle) and that advance U.S. values, interests and goals); and efficiency information technology. (reshaping programs and processes to focus on goal delivery, not

24 MAY 2018 | THE FOREIGN SERVICE JOURNAL merely internal coordination). Each of these requires an infusion It is said that the one thing other countries dislike more than of capital—human and financial. American leadership is the absence of American leadership. The State Department’s mission is quite straightforward: to America may be losing its unique capacity to inspire. advance and safeguard American security and promote American interests and values worldwide through diplomacy; to achieve Looking Ahead national goals without putting people and treasure at risk through The new Secretary of State can set the department on a firmer military action; to persuade others to work with and for us in com- foundation and truer course. It will not take much to generate mon cause. As in business, certainty and predictability are valued energy from the workforce. It’s not necessary to undo the prospec- in diplomacy. Here, predictability generates credibility and reliabil- tive reforms. It is necessary to validate, integrate and fund strategic ity, which, in turn, generate trust and cooperation. One of Ameri- priorities. Cut clutter and complexity; don’t mistake motion for ca’s greatest strengths has been to serve as model and example. movement; and don’t confuse internal coordination for external It is true that disruptions can and do produce short-term gains. goal delivery. Invest in people. But they are rarely a durable foundation for long-term, relation- State Department and USAID employees are as capable, ship-based success. With a reduced U.S. foreign affairs budget, determined and skilled as their colleagues in other national secu- dispirited employees and a cramped vision of U.S. leadership, rity agencies. They value leadership. They want to know that the many of America’s adversaries and rivals see retreat and retrench- Secretary’s team values them—people first, mission always—and ment, spiked with bluster about military force and economic that it will look to have the right people in the right places at the threats. Little wonder that friends and allies now question the right time with the right resources, support and protection to carry value of America’s word or loyalty. out the mission. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 25 FOCUS ON DEMOCRACY

The State of Democracy in Europe and Eurasia FOUR CHALLENGES

In a decade of backsliding on democracy around the world, the countries of Europe and Eurasia feature prominently.

BY DAVID J. KRAMER

n its most recent annual survey, “Freedom in the The Authoritarian Challenge World 2018: Democracy in Crisis,” Freedom House Russian President Vladimir Putin’s authoritarian regime leads documents 12 straight years of decline in politi- the campaign to undermine the very concept of democracy in cal rights and civil liberties around the world. The Europe, the United States and other countries in the Western countries in the Europe and Eurasia region play a Hemisphere. We saw this with Russia’s interference in the U.S. significant role in this overall decline. election in 2016 and elections in France, Germany, Austria and the Indeed, the region is beset with four major referendum in the Netherlands; we are seeing it with Russian inter- challenges to democracy, all interrelated: the ference in Mexico’s presidential election scheduled for this July. authoritarian challenge posed especially by The Kremlin uses bots and trolls in an online effort to tap into Vladimir Putin’s Russia; the backsliding from democracy in divisive, sensitive topics such as immigration and to spike debate Icountries such as Hungary, Poland and Turkey; a general lack with phony tweets and messages. For example, in January 2016 of confidence in the democratic system among countries on the they spread a false story in Germany about a Russian-German continent; and corruption, which opens the door for nefarious girl who was allegedly raped by illegal immigrants. For nearly a forces to undermine democratic, market forces. decade, RT and Sputnik, the Kremlin’s main propaganda outlets, The confluence of these four factors has put Europe in a have been used not to promote and elevate the image of Russia, dangerous position. but instead to denigrate democracies in Europe and the United States, claiming that these countries are corrupt and unrespon- David J. Kramer is senior fellow in the Vaclav Havel sive to voters’ concerns on issues such as immigration. Program on Human Rights and Diplomacy at the Putin views democracies on the continent, especially those Steven J. Green School of International and Public that border Russia, as a threat to the system he has in place. He Affairs, part of Florida International University. He especially regards popular movements by Ukrainians, Georgians previously served as president of Freedom House and and others pressing for integration with the Euro-Atlantic com- as assistant secretary of State for democracy, human rights and labor munity, greater democracy and an end to corruption as a serious and deputy assistant secretary for Europe and Eurasia in the George challenge to the political model he has established in Russia, W. Bush administration. which depends on perpetuating the myth that the West and the

26 MAY 2018 | THE FOREIGN SERVICE JOURNAL COURTESY OF FREEDOM HOUSE

United States are threats. Putin refuses to accept that people in gratulating these leaders for winning rigged elections. Ukraine and Georgia, for example, to say nothing of Russians It is important to remember that the way regimes treat their themselves, are capable on their own of demanding better from own people is often indicative of how they will behave in foreign their leaders; they must be instigated from outside. This is why policy. If they engage in authoritarian practices within their own he accused former Secretary of State Hillary Clinton of giving a borders, they are less likely to respect the rights of people else- “signal” to Russians who protested the fraudulent parliamentary where, to say nothing of concepts of sovereignty and territorial elections in December 2011. integrity (see Russia’s invasions of Georgia in 2008 and Ukraine But Putin is not alone in leading the authoritarian charge. in 2014). If we do nothing in the face of gross human rights Ilham Aliyev oversees a massively corrupt regime in Azerbaijan, abuses, we signal to leaders in these countries that they can get which has more political prisoners than Russia. Belarus contin- away with such behavior, emboldening them to push the enve- ues to suffer under Aleksandr Lukashenko’s tight grip on power. lope even further. For the sake of freedom and democracy, as The United States has applied targeted sanctions for human well as for security reasons, it is important to push back against rights abuses against Putin’s Russia and Lukashenko’s Belarus, authoritarian behavior in Europe and elsewhere. but not against Aliyev’s Azerbaijan. Leaders of all these coun- tries need to know that there are consequences for engaging in Democratic Backsliding in Europe gross abuses against freedom, targeting critics and denying the Poland and Hungary were among the first in Europe to transi- opposition the right to participate in the political process, as well tion from communist systems to thriving democracies. Their as for interfering in other countries’ elections. Western democra- membership in the North Atlantic Treaty Organization and the cies should not legitimize phony elections in Russia (in March) European Union was the culmination of their efforts to return and Azerbaijan (April), and Western leaders should not be con- to the European fold. Poland has been a leader and model for

THE FOREIGN SERVICE JOURNAL | MAY 2018 27 Brexit demonstrates how military interventions in neighboring Syria and Iraq.” That has created problems for the United States and the forces it backs Europe lost confidence in the in Syria and Iraq. Again, the way Erdogan treats his own people path it was on—toward greater reflects the way he aggressively and dangerously goes after forces he doesn’t like beyond Turkey’s borders. integration, solidifying of Beyond these three countries, right-wing populists and democratic gains and nationalists are winning seats in various European parliamen- tary elections, as well as in the European Parliament. They deni- a market system. grate democratic values, demonize immigrants and refugees, and play into the hands of Putin by threatening the sustainability of the democratic model. The fact that far-right leader Marine Le Pen made it into a runoff election against Emmanuel Macron is frightening, even if Macron ultimately won. The rise of the other countries in the region seeking to make a similar change. Alternative for Germany Party, the first far-right party to win Following the victory of the Law and Justice Party in Poland in representation in Germany’s Bundestag since 1945, should be 2015, however, the European Union and human rights groups additional cause for concern. The victory of the Five Star Move- have raised concerns involving the courts and justice system, ment and the League in Italy’s elections made Putin happy but press freedom, nongovernmental organizations and treatment of has pro-E.U. and pro-democracy forces deeply concerned. The the previous party in power. They have voiced similar concerns United Kingdom has long been one of the continent’s leaders in regarding Viktor Orban and his Fidesz Party in Hungary. defending and promoting democracy, but Brexit has reduced As Freedom House notes in its 2018 survey, “In Hungary its profile considerably in this area, and in the European Union and Poland, populist leaders continued to consolidate power more broadly. by uprooting democratic institutions and intimidating critics in civil society.” While Poland remains strongly suspicious of Putin, A Lack of Confidence Orban has been much more receptive to returning to “business Brexit demonstrates how Europe lost confidence in the path as usual” with Russia, threatening to undermine European unity it was on—toward greater integration, solidifying of democratic in confronting the Putin challenge. That said, both countries gains and a market system. Negotiations between London and joined with the United Kingdom, the United States and others in Brussels have damaged the union’s standing and energized expelling Russian diplomats in March for the Kremlin’s alleged other countries, such as Poland, to defy Brussels. Splits within role in the poisoning of a former Russian spy and his daughter in the E.U. cause it to lose its appeal among aspiring nations like the U.K. Ukraine and Georgia, as well as countries in the western Balkans. Turkey is another country going in the wrong direction; The desire to join the organization has long been an incentive Freedom House moved it from the “partly free” to the “not free” for nations to undertake difficult reforms to meet the criteria for category in this year’s survey, the “culmination of a long and membership. If the image of the E.U. suggests confusion and accelerating slide” in that country, according to the human disenchantment, aspiring states might rethink their goals and, in rights organization. Since a coup attempt in 2016, President turn, abandon important but difficult democratic and economic Recep Tayyip Erdogan has arrested tens of thousands and fired reforms. That would be a further setback to the cause of democ- many more from various government and other jobs. More racy on the continent. journalists are in prison in Turkey—roughly 150, many accused Equally important, the European Union seems uncertain of support for the Gulenist movement—than in any other coun- how best to fight the authoritarian challenge. In contrast to the try in the world. strong sanctions imposed after Putin’s invasion of Ukraine, only According to the Freedom House survey, “In addition to four states—the United Kingdom, Estonia, Latvia and Lithu- its dire consequences for detained Turkish citizens, shut- ania—have imposed sanctions for Russia’s gross human rights tered media outlets and seized businesses, the chaotic purge abuses. Failure to enact measures like those the United States has become intertwined with an offensive against the Kurdish has in place under the 2016 Global Magnitsky Act (the Russia- minority, which in turn has fueled Turkey’s diplomatic and specific Magnitsky Act passed in 2012) signals Europe’s weak-

28 MAY 2018 | THE FOREIGN SERVICE JOURNAL ness to Moscow. Similarly, the E.U. seems feckless in the face The refugee crisis of of backsliding among member-states like Poland and Hungary. And the only reaction to Erdogan’s crackdown in Turkey has 2015-2016 exacerbated been to delay further talks on possible membership, a goal many the rise of xenophobic in Turkey have already given up. Leaders on the continent have become too removed from forces on the continent. the needs of their voters, and the refugee crisis of 2015-2016 exacerbated the rise of xenophobic forces there. The need to pay more attention to constituents should not translate into doubts about the democratic system of government, however. Europeans should remember the words of Winston Churchill: “Democracy is of winter. The energy sector in Ukraine has been thoroughly cor- the worst form of government, except for all the others.” Failure to rupt for years, but the reduction of Ukraine’s reliance on Russian defend their democracies plays right into the hands of Putin. supplies for its own domestic consumption and development of alternative energy sources, along with an end to wasteful subsidies Corruption for heating, have helped Ukraine address this vulnerability. Still, Putin also exploits European weakness through corruption, Ukrainians worry that the tremendous sacrifices they made during his greatest export. But for Putin to export corruption, the West, and since the Euro-Maidan Revolution in early 2014 are being including the United States, must agree to import it. That Marine forgotten amid massive corruption that threatens their country’s Le Pen’s party openly took roughly $10 million from a Russian future as much as Russia’s military aggression does. bank for the campaign last year should be a source of shame, not To be sure, even without Russian influence, the West has had pride. Moreover, it should be illegal to accept foreign funds, as it corruption problems; but Putin makes the problems significantly is in the United States. Making foreign funding of elections, par- worse. Working together, Europe and the United States need ties and candidates illegal would go a long way toward limiting to clean up their own house and deprive Putin of openings to Putin’s corrupting influence. exploit. They should impose sanctions, as permitted under the Transparency in funding for think-tanks and research insti- Global Magnitsky Act, for corruption originating from places like tutes is also necessary to ensure they are not fronts for the Krem- Russia and Azerbaijan. If those who engage in illicit activities lin, their cronies or others like the Aliyev regime. There should cannot enjoy the fruits of their ill-gotten gains, they might be less also be greater transparency in high-end purchases of real estate, likely to engage in such activity in the first place. companies and other assets. The derisive nickname “London- grad” refers to the Russian, Azerbaijani and other money, much What to Do? of it ill-gotten, flowing through London’s banks and real estate If current trends continue, we will see weakened democ- market. Going after corrupt Russian and other money should be racy across the continent, an emboldened Putin and increased a top priority for Western governments. corruption—a dire outlook. Questions these days about the Continued dependence on Russia for energy also contributes United States’ commitment to democracy do not help. European to corruption in Europe. Putin uses oil and gas as tools against governments need to aggressively defend and promote democ- others, and projects like Nord Stream II, a pipeline that would racy and freedom throughout the continent. They must not run from Russia to Germany under the Baltic Sea, should be assume that countries that seem to have made the transition to viewed through this lens. This pipeline would eliminate Ukraine democracy successfully are finished with their work. as a transit country, causing serious harm to that country’s econ- We in the West must restore confidence that democracy, while omy. Moreover, the pipeline is not commercially viable, since not perfect, is the best system of government we have. We must Nord Stream I, along which Nord Stream II would run, is not push back against the authoritarian challenge and recognize Putin near full capacity. It instead would entrench German-Russian for the threat that he is. We should pass and enforce legislation energy ties at a time when such reliance is prone to manipula- and sanctions policies that put authoritarian leaders and their tion and pressure from the Kremlin. accomplices on the defense. It is time, in other words, for Europe Ukraine’s past dependence on Russian energy left it vulnerable and the United States to seize the initiative, securing gains and when Moscow decided to turn off the taps to Ukraine in the height victories for democracy and freedom on the scoreboard. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 29 FOCUS ON DEMOCRACY

Worrisome Trends in LATIN AMERICA Widespread corruption, crime and a lack of security, education, employment and basic services are driving a loss of faith in democracy throughout the continent.

BY ALEXANDRIA “ALEXI” PANEHAL

he growing repression in Venezuela election last year or will be eligible to do so in 2018. Those two has dominated U.S. coverage of Latin years are packed with a total of nine presidential elections—in America and the Caribbean for quite Brazil, Chile, Colombia, Costa Rica, Ecuador, Honduras, Mexico, some time, understandably. The inten- Paraguay and Venezuela—not to mention legislative midterm sifying political and economic turmoil elections in several countries. The outcomes of that balloting will under President Nicolas Maduro’s have major ramifications, positive and negative, for U.S. eco- misrule has driven tens of thousands nomic and political interests in Latin America and the Caribbean. of desperate Venezuelans to Colom- While holding free and fair elections is an important exercise bia and Brazil—on top of the massive of democratic principles, it is not sufficient. Strengthening the brain drain during Hugo Chavez’s tenure. That exodus, in turn, rule of law, inculcating respect for minority and human rights, Thas precipitated a refugee crisis in Colombia and Brazil; the latter and increasing citizen satisfaction with government services are government declared a “social emergency” in February as a result. also important building blocks in that process. Unfortunately, The breakdown of law and order in Venezuela reflects a recent polling data reflect some discouraging trends in those growing perception in the region of citizen insecurity, which can areas. Yet despite some worrisome trends as far as support for weaken public faith in political institutions and the rule of law. democracy in the region is concerned, economic ties between On the positive side, an incredible three out of every four the United States and Latin America remain strong. Latin Americans of voting age either voted in a presidential The Power of Trade and Investment Alexandria “Alexi” Panehal, a Foreign Service officer with the United The United States continues to be one of the top trading part- States Agency for International Development since 1983, is currently ners for nearly every country in Latin America, so these trends on the faculty at the National War College. Prior to that assignment, should be of concern in Washington, D.C. According to the U.S. she was USAID mission director in Santo Domingo from 2012 to 2016 Census Bureau for 2016, America’s top four trading partners in and in Quito from 2005 to 2009. Her earlier overseas assignments Latin America in terms of exports to the United States were Mexico, include Managua, Bangkok, Tunis, Tegucigalpa and Kyiv, where she Brazil, Colombia and Argentina. Chief exports to the United States was deputy director of the Regional Mission for Ukraine, Moldova and from Latin America include oil, agricultural products, minerals and Belarus. Following the January 2010 earthquake in Haiti, she coordi- manufactured goods. In terms of exports from the United States to nated interagency efforts for shelter and infrastructure reconstruction. Latin America, sales more than doubled between 2000 and 2013. The views expressed in this article are solely those of the author, and To solidify its economic dominance of the region, the United not necessarily those of the U.S. Agency for International Development States has signed reciprocal trade agreements with its most impor- or the U.S. government. tant Latin American partners, as well as regional trade agreements

30 MAY 2018 | THE FOREIGN SERVICE JOURNAL COURTESY OF ANDRES E. ASPURUA 3.0]/WIKIMEDIA [CC BY-SA COMMONS HOUSE Venezuela’s National Police use tear gas and plastic pellet gunshot against protesting students in Altamira Plaza in Caracas in 2014.

like the North American Free Trade Agreement and the Central Russia’s state-owned oil company, Rosneft, has extended at America and the Dominican Republic Free Trade Agreement. In least $17 billion in loans and credit to Caracas since 2006, giving addition, U.S. foreign direct investment in Latin America is twice as more than $1 billion in April 2017 alone. On at least two occa- great as it was a decade ago, much of it in Brazil and Mexico. sions, this influx of Russian cash reportedly kept the Venezuelan At the same time, new, influential economic actors have government from defaulting on its foreign loans. In exchange, entered the scene. In the last 15 years, China has emerged as a Moscow has been promised future oil shipments, acquired new economic powerhouse in the Americas, and recent Russian ownership interests in some of Venezuela’s more profitable economic and political activity in Venezuela is cause for con- oil projects and gained greater control over Venezuela’s crude cern. Both of these trends bear watching. reserves. China tends to concentrate its trade and investment in a few key countries—principally Venezuela, Ecuador, Chile, Peru, Mexico and Brazil—that possess natural resources like oil or minerals, which are of particular interest to Chinese investors. Its volume of trade with the Americas as a whole has skyrocketed, from $12 billion in 2000 to more than $260 billion in 2013. Bei- jing has also stepped up its lending to the region, from $1 billion in 2008 to $37 billion in 2010. Similarly, in 2015, Beijing’s imports from Chile, Peru and Brazil represented 8, 5 and 2.5 percent of each nation’s gross domestic product, respectively. Chinese and, more recently, Russian involvement in Venezu- ela warrants special attention. Historically, the United States has maintained substantial investments in Venezuela and conducted considerable trade, primarily in imports and exports of petroleum and its derivatives, with that country. However, the exploitation of new domestic reserves has reduced our dependence on imported

oil, while the imposition of sanctions against the Chavez and NERDOGUATE 4.0]/WIKIMEDIA [CC BY-SA COMMONS Maduro regimes, and the growing economic and political turmoil A protestor at the national strike in Guatemala in 2015 holds a sign saying "Not my President," referring to then-President Otto in Venezuela, have curbed the appetite of U.S. investors. Moscow Fernando Pérez Molina, who left office on Sept. 2, 2015, and was and Beijing have both moved into the resulting vacuum. arrested the following day on charges of corruption.

THE FOREIGN SERVICE JOURNAL | MAY 2018 31 CARLOS RODRIGUEZ/ANDES (FLICKR)[CC BY-SA 2.0]/WIKIMEDIA COMMONS 2.0]/WIKIMEDIA BY-SA (FLICKR)[CC RODRIGUEZ/ANDES CARLOS In Quito, protestors meet riot police during a demonstration against the policies of then-President Rafael Correa, in particular the inheritance tax laws introduced by his government, in 2015.

Fueled by widespread Ask people almost anywhere in Latin America what their key concern is, and many will say crime. Fueled by widespread trafficking in drugs, weapons trafficking in drugs, weapons and people, as well as poverty and gangs, Latin America has become one of the most violent places and people, as well as poverty on earth. In 2013, nearly one in every three murders in the world and gangs, Latin America took place on the streets of Latin America—where just 8 percent of the world’s population lives. The United Nations Office on has become one of the most Drugs and Crime’s “Global Study on Homicide 2013,” which violent places on earth. examined peacetime murder statistics from all over the world, ranked 13 Latin American countries among the top 20 most dangerous in the world; these included Honduras, Venezuela and Brazil. Latin American cities are particularly dangerous. According to the World Atlas, in 2017 the top three cities in the world with Law and Disorder the highest murder rate per capita were all in Latin America; Los In addition to facilitating China and Russia’s inroads into Cabos, Mexico, ranked first, followed by Caracas, Venezuela, and Venezuela, the country’s turmoil has also undermined U.S. and Acapulco, Mexico. In fact, of the top 50 most murderous cities, Latin American efforts to combat the drug trade. Narcotraffickers Latin America accounted for an astounding 90 percent (40 cit- have now shifted some of their operations to Venezuela, where ies). Most of these cities were concentrated in a few countries, ungoverned spaces and outright collusion with local authori- notably Brazil, Mexico, Venezuela and Bolivia. ties (including Venezuelan Vice President Tareck Aissami, who A perception of governmental inability to combat crime is is linked to cocaine cartels) facilitate their activities. Because also widespread. The World Justice Project’s 2017 report ranked of the influx of drug traffickers, as well as the emergence of most Western Hemisphere countries near the bottom on its paramilitary groups and general lawlessness, Venezuela held the order and security index, with Venezuela at 110th out of 113 dubious distinction of having the highest murder rate per capita countries worldwide, and Colombia, Bolivia and Guatemala at in the world in 2016. But concern over the crime rate extends far 105, 101 and 100, respectively. beyond Venezuela. The region’s ranking was even worse on the WJP’s Criminal

32 MAY 2018 | THE FOREIGN SERVICE JOURNAL Justice Index, with Honduras, Bolivia and Venezuela scoring They therefore become more inclined to sacrifice some freedom as the bottom three. Eleven other Latin American countries, for more security. Vanderbilt University’s 2017 Latin American including Ecuador, Colombia and Mexico, fell within the bot- Public Opinion Poll reveals that popular support for democracy tom tercile, as well. On the WJP’s Rule of Law Index, Venezuela reached its lowest regional average in 2014 (the last year for was again dead last at 113—below Cambodia, Zimbabwe and which we have comparable data across the region), even as Afghanistan—while Bolivia and Honduras scored among the responses favoring “authoritarian stability” and citing “democ- worst in the world, at 106 and 103, respectively. The index noted racy at risk” hit levels not seen in decades. These antidemocratic that, compared to 2016, 14 countries in the Americas slipped attitudes were particularly pronounced in Brazil, Haiti, Venezu- down, while only 11 improved and five stayed the same. ela, Paraguay and Jamaica. The apparent inability of these governments to combat crime The Economist Intelligence Unit’s 2017 Democracy Index has provoked two disturbing responses that may not bode well also showed a broad decline in support for democracy. Of the for stability in the region. First, it has provided yet another 24 Latin American countries encompassed in its review, only reason for people to emigrate. Recent surveys by both Vanderbilt one, Uruguay, was categorized as a full democracy. Fifteen University and the Inter-American Dialogue indicate that inse- were branded “flawed” democracies, five were “hybrids” and curity and the fear of crime now appear to be one of the most two—Venezuela and Cuba—were identified as “authoritar- important “push” factors ian regimes.” All of that compel people to these studies point to emigrate. A significant a disturbing decline in percentage of migrants support for democratic from Guatemala, Hon- structures throughout duras and El Salvador the Americas. cited violence—not Part of the explana- economic opportunities tion for this regression or family reunification— from democratic norms as their primary motive can be attributed to for entering the United rampant corruption. States. Vanderbilt’s LAPOP sur- Second, it seems clear veys have documented that many people in the AMERICA/WIKIMEDIA OF VOICE COMMONS that this has a strong, Americas feel democ- On May 20, 2017, millions marched in Caracas to mark the 50th consecutive corrosive influence on day of protests, demanding an end to repression and immediate elections. racy has not delivered citizens’ trust in their on its promises. Job creation, access to quality education, poverty government. In Latin America, corruption has historically been alleviation, citizen security and improvements in the quality of life widespread and deep-seated and impunity commonplace. Still, have not reached enough Latin Americans, especially the poor. the unfolding of the Oderbrecht bribery scandal has shocked Although the World Bank projects that the region’s economies will voters from Brazil to the Dominican Republic, and led to the grow on average by 1.2 percent in 2017 and 2.1 percent in 2018, resignations of Peruvian President Pedro Pablo Kuczynski and the growth of the middle class has slowed. Consequently, some 39 Ecuadoran Vice President Jorge Glas, and the latter’s subse- percent of Latin Americans are vulnerable to falling back into pov- quent sentencing to six years in prison. This anticorruption erty. And even though the middle class has grown a little, so has effort, initiated by crusading public prosecutors in Brazil and inequality. Despite substantial improvements between 2002 and embraced by suits filed by both public prosecutors and private 2014, Latin America still has the highest level of income inequality citizens in other Latin American countries, may reflect an in the world. awakening of activism in Latin America to finally try to weed out corruption and impunity. Restoring Faith in Democracy The World Justice Project ranked the vast majority of Latin When governments don’t effectively combat crime, many American and Caribbean countries in the bottom third in the people conclude that a democratic system can’t protect them. world in terms of combating corruption. Transparency Inter-

THE FOREIGN SERVICE JOURNAL | MAY 2018 33 national’s latest Corruption Perceptions Index also gave these will help create more jobs there and more reliable trading countries an average grade of 44 out of 100 (anything below 50 partners for U.S. businesses. This, in turn, can also dampen the indicates governments are failing to tackle corruption in their impulse to migrate, reduce the attraction of illegal jobs, and own system). offset the influence of actors such as China and Russia in Latin There are several policy implications for the United States America. A strong and sustained U.S. presence throughout the in all that is brewing in the hemisphere. First, helping Latin hemisphere can also help combat the other nefarious influ- Americans control their crime wave would not only help stem ences that seep across our common borders like trafficking in the flow of illegal drugs into the United States but, based on persons, arms and drugs, as well as, potentially, terrorism. recent surveys of the push-and-pull factors that influence Our foreign policy focus tends to shift with the latest crisis. emigration, it also could dampen the flow of illegal immigra- In the case of the Americas, as I have tried to underscore in tion. Second, promoting more effective governance and the this article, the absence of crises does not imply that all is well. rule of law, and helping authorities combat corruption, are Trouble is brewing in Latin America. We need to remain vigi- both critical to the creation of more stable democracies. The lant to the disturbing trends and maintain our focus on, and United States is providing these countries with some assistance commitment to, the region. through the Merida Program, the Caribbean Basin Security Ini- The United States and Latin America are inextricably linked tiative and the Central American Regional Security Initiative to by our economies, our shared political principles and security combat drug trafficking and the crimes associated with it, such concerns, and the strong bonds between our peoples. Now is as money laundering and bribery. not the time to lose sight of all we have to gain, or lose, in Latin Finally, strengthening our economic ties with the region America. n

34 MAY 2018 | THE FOREIGN SERVICE JOURNAL FOCUS ON DEMOCRACY

A group of Kenyan youth march for peace before the general elections in

USAID/KENYA March 2013. USAID Election Assistance LESSONS FROM THE FIELD

Since the 1990s electoral assistance has come into its own as a branch of foreign aid and as an academic discipline.

BY ASSIA IVANTCHEVA

n the eve of the 2017 general elec- that the zero-sum, winner-take-all dynamic around elections tion in Kenya the streets of Nai- had to stop, but no one was confident the desire for peace would robi were empty. Schools, shops prevail. It was typical of the type of sensitive, fragile and polarized and restaurants were closed, environment the U.S. Agency for International Development steps and an urgent question hung in into to provide critically important electoral assistance. the air: Will there be violence Beginning in the late 1980s, the world experienced an “elec- between supporters of the two toral boom,” with the number of developing countries holding camps on Election Day? Many competitive elections for executive office more than doubling residents left town or sent their by the end of the century. The rapid emergence of multiparty families and children away, uncertain when they would be able democracies in both old and new nation-states after the end Oto return home safely. The tension was palpable. Everyone agreed of the Cold War brought still more elections. At the same time, USAID’s support for democratic elections expanded with bipar- Assia Ivantcheva currently serves as senior adviser in the tisan backing from Congress, increasing exponentially following Elections and Political Transitions Division at USAID’s Center of the breakup of the Soviet Union. Electoral assistance has not Excellence on Democracy, Human Rights and Governance (DRG only developed into its own sector; it has become a subject of Center). In the past, she has led DRG portfolios at USAID/Serbia and academic study and an academic discipline—today’s graduate Montenegro and at the USAID regional mission in Kyiv, covering students can get a master’s degree in electoral assistance. Ukraine, Belarus and Moldova. She also served for three years as Over the years USAID has provided assistance to developing a senior official at the Organization for Security and Cooperation countries in five main areas: election legislation and adminis- in Europe in Warsaw. tration; civic and voter education; electoral oversight through

THE FOREIGN SERVICE JOURNAL | MAY 2018 35 USAID/CAROL SAHLEY USAID/CAROL observation; preventing Three months after the death of President Michael Sata, a snap electoral conflict; and politi- presidential election was held in cal party development. Today Zambia on Jan. 20, 2015. USAID USAID and its partner orga- worked with election officials, political parties and civil society nizations are recognized as observers to ensure a peaceful, global leaders in these areas. USAID nationwide election. Since the early 2000s, A 90-year-old woman is biometrically verified to vote on Election Day in Ghana in 2017. USAID has supported the emergence of a global community of practice on international such as NAMFREL (National Citizens’ Movement for Free Elec- and domestic election observation that includes a consensus tions) in the Philippines, ISFED (The International Society for on standards and codes of ethics. USAID supports the activi- Fair Elections and Democracy) in Georgia and “Civil Network ties of many of the most prominent U.S.-based organizations OPORA” in Ukraine, as well as regional networks and organiza- involved in election assistance, including the National Demo- tions like ANFREL (Asian Network for Free Elections) in Asia or cratic Institute, International Republican Institute, International and EISA (Electoral Institute of Southern Africa). Foundation for Electoral Systems, Democracy International and USAID is the recognized leader in supporting political party The Carter Center. USAID and its partners have also provided development, a sometimes-misunderstood component of our long-term support to local election groups, many of whom have work. Per its political party assistance policy, USAID does not become powerful players in their own countries and regions, support particular parties or “pick winners.” Rather, its assistance

36 MAY 2018 | THE FOREIGN SERVICE JOURNAL is nonpartisan, aiming to strengthen the ability of parties and When it comes to peace, the politicians to effectively represent their constituents regardless of ideology. Unlike European political foundations, which mostly electoral cycle approach is the work with “sister parties” that share their ideological orientation, only viable conflict mitigation USAID works with all significant democratic political parties. In Washington, D.C., USAID officers coordinate assistance approach because it covers with colleagues at the State Department and at the interagency the period before, during and level, as well as deploying to support USAID missions. Along with colleagues from State’s Bureau of Conflict and Stabilization after an election. Operations and the Bureau of Democracy, Human Rights and Labor, we help embassies with Election Day observation and donor coordination. Finally, we provide topical training, publi- cations and tools to our DRG colleagues in the field. of life. Given limited resources and staff, which elections should Questions to Consider When Offering Assistance we focus on? Elections that may trigger violent conflict, or elec- USAID’s electoral assistance has not run perfectly over the last tions where peaceful competition could lead to positive changes? few decades. There have been a number of hiccups and lessons Elections in small countries that badly need assistance, or elec- learned along the way. In some cases technocratic solutions tions in countries that are considered a foreign policy priority and inadequately address deeply political issues; assistance is offered thus have significant resources? Should we assist with the conduct to political parties whose dedication to internal reform has been of local elections that are often neglected and yet directly affect mostly rhetorical; or peace messages do not reflect sufficient the average citizen, or focus on high-profile national elections? research into needs and audiences. Moreover, although elections We also need to decide how best to plan and design election and electoral assistance by themselves cannot be expected to assistance for all relevant domestic stakeholders, and how to guarantee democratic development, elections remain the only conduct policy analysis and needs assessments in coordination means to a legitimate democratic government. So the question is with other U.S. agencies and international donors. We need to not whether to assist with elections, but rather, what kind of elec- design, procure and manage programs; monitor and trouble- tion support is needed. It is essential, at the same time, to manage shoot on Election Day; and address challenges during the post- expectations about what such assistance can deliver. election period. During 2017, elections varied widely across the globe: from highly competitive to predictable, from peaceful to violent, from The Electoral Cycle Approach credible to some that made for incredible stories. We still use Election Day steals the headlines, and assistance funding qualitative terms to describe elections, such as “free and fair,” and staffing spike around that time; but as the excitement fades, “credible,” “legitimate,” “inclusive,” “peaceful,” etc., and there is embassies, USAID missions and partner nongovernmental orga- no single international standard for democratic elections. But nizations (NGOs) on the ground continue to carry out electoral there is an emerging global consensus around a set of standards assistance and prepare for the next election. rooted in universal human rights and codified in public interna- This long-term assistance does not produce headlines. It tional law. Many of these standards include basic civil and politi- often includes activities that do not sound terribly exciting: legal cal freedoms, such as freedom of peaceful assembly, association analysis and organizational assessments, training, workshops, and expression; the right to life; and the underlying concept of surveys, voter registration drives and advocacy campaigns. And rule of law. Promoting those standards and principles through yet, since the early 2000s this long-term, electoral cycle approach programming is at the core of USAID’s electoral assistance. has been embraced by the international community and become In 2018 more than 60 national elections will take place in coun- the norm among election practitioners, who know that improve- tries where USAID could provide assistance, excluding potential ment of the process is best achieved between elections. snap elections or unexpected political crises. In Africa alone, there When it comes to peace, the electoral cycle approach is the will be some 20 national elections; data shows that one in five only viable conflict mitigation approach because it covers the elections on the continent are at risk of violence that leads to loss period before, during and after an election. For example, in more

THE FOREIGN SERVICE JOURNAL | MAY 2018 37 The news on cyberthreats and groups and GONGOs (government-supported organizations) that mimic legitimate citizen observer groups. There is evidence election interference in the that authoritarian regimes learn from each other. United States and elsewhere In 2018 Russia, Egypt and Venezuela have held, and Azer- baijan will hold, elections with predictable outcomes. There are has caused some observers countries in Africa, Latin America and the former Soviet Union to question the premise of where elected leaders refuse to let go of power and manipulate laws and procedures to stay for a third or fourth term, under- election assistance itself. mining democracy. In other places, such as Libya, South Sudan and Afghanistan, the outcome may be unpredictable, but the high degree of internal conflict, insecurity and corruption threatens to undermine the whole enterprise. Issues regarding technology and social media. Online media than 90 percent of cases examined, violence begins in the pre- have provided the tools and platforms for citizens to express election stage. Evidence from the pre-election period in Afghani- their demands and mobilize civic and political movements. stan, Zimbabwe, Bangladesh, Guyana, Kenya and Sierra Leone They have also helped increase scrutiny over governments and demonstrates that external scrutiny makes manipulation more have improved observation methodologies and the speed of costly and more difficult, which in turn deters the opposition data processing. Governments have used biometrics to improve from using violence as a means to affect elections. identification and voter registration, and have even implemented USAID’s long-term electoral assistance model, a component electronic transmission of results in the name of efficiency and of overall development strategy, is vital to effecting policy change. integrity. However, the use of technology for elections has also A key strength of this approach is the goal of ending the need for raised a whole host of new issues, which can paradoxically electoral assistance itself by focusing on self-reliance. Through undermine the integrity of the electoral process and voters’ trust. our partner organizations, USAID’s assistance aims to build the As of 2015, at least 25 countries in Africa, including Kenya, capacity of domestic institutions—election management bodies, Nigeria, Ghana, Malawi and the Democratic Republic of Congo, the judiciary, police, political parties, civil society, the media and had included an electronic component in their electoral sys- domestic election observation organizations—to carry out demo- tems. There were some successes, but also quite a few failures cratic elections. At the same time, we recognize that sustainable due to high upfront and recurring costs, procurement problems, outcomes take at least several peaceful and credible electoral increased vulnerability to fraud, insufficient domestic capacity cycles to establish themselves. Thus, withdrawal from electoral to implement or maintain the new equipment, and voters’ lack assistance needs to be gradual and well timed. of understanding of the new systems. Countries such as Ukraine experienced cyberattacks that 21st-Century Challenges to Free and Fair Elections interfered with their elections. With another important election Challenges to conducting free and fair elections in the in Ukraine scheduled for 2019, USAID, the donor community developing world persist and include continued discrimination and civil society groups are focused on protecting the country’s and de facto exclusion of women, youth, persons with disabili- electoral system against cyberattacks and countering Russian ties, and ethnic and religious minorities; insecurity and violent disinformation and propaganda. conflicts; and corruption. In addition, the 21st century has seen Finally, the news on cyberthreats and election interference in other disturbing trends, including: the United States and elsewhere has caused some observers to The deteriorating quality of the electoral and political process. question the premise of election assistance itself. But there is a In cases where democracy is in decline, the ability of authoritar- vast difference between election assistance—an integral compo- ian and semi-authoritarian regimes to hold legal yet illegitimate nent of international development—and election interference. elections has increased. Many authoritarian countries have good Ken Wollack, NDI’s outgoing president, says this is like compar- laws on the books and institutions that are efficient in imple- ing a life-saving medicine to a deadly poison. USAID’s election menting the political visions of governing elites. They follow the assistance aims to make the process transparent and strengthen letter, but not the spirit of the law, creating “false” opposition local institutions, while interference is about secrecy and

38 MAY 2018 | THE FOREIGN SERVICE JOURNAL undermining institutions. Assistance supports open data and access to information, while interference is about closed sources and disinformation. Finally, electoral assistance follows publicly known standards, strategies, funding streams and programs that support a credible electoral process—regardless of the outcome.

Back to Kenya: Post-Election Kenya’s 2017 election was one of the most technologically advanced and yet most divisive elections in recent African his- tory. It was also one of the most expensive elections in the world. The election was marred by the murder of the Election Com- mission’s IT chief, the withdrawal of the opposition candidate from the October election re-run, demonstrations and a police crackdown that resulted in loss of life. The election yielded a record number of court cases, one of which led to the Supreme Court’s annulment of the presidential election—an unprecedented decision for Africa and a high mark for judicial independence. However the decision also raised questions within the global election community: The court’s finding was based on whether the electoral process was “simple, accurate, verifiable, secure, accountable and transparent,” as mandated by the constitution, rather than whether the problems that occurred negated the results or the will of the voters. This decision may embolden other courts to play more active and independent roles, but it could also encourage “spoilers” to try to overturn results they do not like. The other five elec- tions held in August 2017 in Kenya, including for governors and Parliament, were also heavily litigated—Kenya’s courts had to review more than 300 cases. Finally, international observers relied on the traditional practice of communicating prelimi- nary findings shortly after Election Day; this caused a backlash, emphasizing the need to put extra effort into qualifying state- ments, as well as focusing more on technology. In the end, the effectiveness of USAID’s electoral assistance depends on our ability to learn and evolve. While neither USAID nor any international donor was responsible for the technology used in the Kenyan elections, the overall electoral assistance provided there remains an interesting case to further examine and draw lessons. One thing is clear: neither the use of technology nor the country’s specific political dynamics fundamentally change the principles behind electoral assistance. Transparency, account- ability and oversight of the entire electoral process—as sup- ported by USAID—remain fundamental principles that need to underpin any electoral assistance efforts. They can help ensure the integrity of the process and keep the trust of the voters. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 39 FOCUS ON DEMOCRACY

Saudi Arabia LIBERALIZATION, NOT DEMOCRATIZATION

The plan for sweeping changes to meet economic and demographic challenges does not appear to include an opening-up of the political system.

BY JERRY FEIERSTEIN

audi Arabia’s leadership is coming under growing pressure to address significant economic and demographic challenges so it can remain a stable, prosperous country. These include: • Nearly 45 percent of the population (currently about 26 million) is under the age of 25. • Although the official unemployment

SJerry Feierstein retired in May 2016 with the rank of Career Minister, following a 41-year Foreign Service career. In addition to service as ambassador to Yemen from 2010 to 2013, his nine overseas postings included Pakistan (three tours), Saudi Arabia, Oman, Lebanon, Israel and Tunisia. From 2013 until his retirement, Ambassador Feier- stein was principal deputy assistant secretary of State for Near Eastern affairs; earlier in his career, as deputy coordinator of the State Depart- ment’s Counterterrorism Bureau, he led the development of initiatives

WIKIMEDIA COMMONS/CC BY 2.0/THX_9151bs to build regional networks to confront extremist groups, block terrorist A Saudi Arabian woman in full niqab. financing and promote counterterrorism messaging. Amb. Feierstein joined the Middle East Institute in October 2016 as a senior fellow and is the director of its new Center for Gulf Affairs.

40 MAY 2018 | THE FOREIGN SERVICE JOURNAL rate is less than 6 percent (private estimates are significantly has received more international attention than the proposal higher), nearly one-third of young Saudis are unemployed. to privatize a small portion of the country’s crown jewel, Saudi • As demand for jobs grows, the traditional employers—the Aramco, which Saudi authorities value at $2 trillion. The exact public sector and the energy sector—are increasingly incapable percentage of the company that would be sold to the public has of providing opportunities. not yet been announced. In addition, the timing of the sale is still • Young, urbanized Saudis are demanding reforms that will unknown; there is some speculation that the release of stock for relax the country’s highly restrictive social climate, especially in sale on international markets may be delayed at least until 2019 regard to gender issues. in hopes that rising prices in the energy In response, Mohamed bin Salman, sector will strengthen the company’s the country’s young crown prince— valuation. But whatever the details of familiarly known as MBS—has already the initial public offering turn out to be, instituted a number of popular social it’s important to remember that this is reforms, and is now undertaking sweep- only one element of a much broader ing economic changes to address the reform package. country’s challenges. But as of now, a real Another important element of the democratic opening in the political sys- Saudi economic strategy involves major tem does not appear to be in the cards. investments to turn the private sector The United States has a strong inter- into the main engine for job creation, est in seeing the crown prince’s reform increasing its contribution to gross efforts succeed. Regional security and domestic product from the current 40 stability, as well as the health of the percent to 65 percent by 2030. The effort global economy, depend on a stable has two prongs: expanding the private Saudi Arabia fully integrated into the sector of the economy, and privatiz- international community. Saudi reforms ing elements that had until now been would also open doors for greater U.S. public-sector enterprises. Specifically, business participation in one of the most Riyadh sees significant potential in

prosperous economies in the world. THE WHITE HOUSE areas as diverse as retail, mining, tour- At the same time, efforts to address Saudi Arabia’s Crown Prince Mohamed bin ism and (surprisingly, for a country the demands of a young, urbanized and Salman. uniquely associated with the oil and gas well-educated population must also industry) renewable energy. Another include meaningful political reform. It is therefore in the interest consideration driving the Saudi interest in solar and nuclear of the United States to encourage the Saudi leadership to include energy is the recognition that the country’s growing domestic measures to build a more open, democratic government in their energy demands are eating into its capacity to export its most plans. marketable asset. In addition to diversifying the economy, the Saudis have It’s the Economy, Stupid announced their intention to transition certain labor categories, MBS’ project revolves around “Vision 2030,” a comprehensive particularly in education and health care, from governmental economic and social initiative with three core elements: control to the private arena. • Developing a diversified and sustainable economy that Beyond developing new sectors for economic growth, Vision shifts away from reliance on the energy sector as the main pillar; 2030 also proposes measures to make the Saudi private sector • Shifting the main driver of economic growth and prosperity more competitive and more attractive for investors. Specifically, from the public sector to the private; and it sets the ambitious goal of placing Saudi Arabia in the top 10 • Creating the millions of jobs needed to absorb the coming nations on the Global Competitiveness Index and increasing the demographic wave as the public sector retreats from its historic share of foreign direct investment in the economy from 3.8 per- role as employer of first resort. cent to 5.7 percent of GDP. Building on the country’s geographic Perhaps no element of the Saudi economic reform package advantages, the plan aspires to make Saudi Arabia a regional

THE FOREIGN SERVICE JOURNAL | MAY 2018 41 WIKIMEDIA COMMONSWIKIMEDIA U.S. Defense Secretary James Mattis meets with Saudia Arabia’s King Salman bin Adulaziz, at right, in Riyadh on April 19, 2017. hub for trade and finance. Toward that end, Riyadh commits in years. By 2014, well over half of Saudis graduating with bach- the plan to reform visa processes, remove licensing obstacles for elor’s degrees were females, though the percentage of women enterprises of all sizes and improve financial services. seeking post-graduate degrees remained among the lowest of any Organization for Economic Cooperation and Development Transforming Saudi Society member-state. Vision 2030 is an aspirational document. It’s unlikely that all Vision 2030 seeks to increase the proportion of Saudi women the ambitious goals it lays out can or will be achieved over the next in the workforce—already rising, particularly in the retail sector— decade. The plan is frank about the need to open up Saudi society to 30 percent by 2030. To help make that happen, Riyadh is drop- on many levels if economic reforms have any hope of succeeding. ping the requirement for gender segregation in the workplace. First and foremost among the Saudi traditions that pose obsta- Beyond gender issues, the crown prince’s ambitious plans cles to economic reform and modernization are those related to to move the Saudi economy toward a private-sector focus will gender and women’s roles in society. MBS created a domestic and require sweeping changes to the country’s traditional cradle-to- international stir last fall when he announced that the government grave social welfare system. Interestingly, young Saudi women would drop its ban on women driving beginning in June 2018. appear far more interested in finding careers in the private sector The royal decree immediately removed one of the most conten- than their male counterparts, who often prefer the security and tious issues in Saudi society. Although actual implementation has better pay and benefits of public-sector jobs. not yet begun, the press is reporting that many young women are In an effort to change that dynamic, the government has eagerly discussing which model of car they plan to buy when the pledged to equalize pay and benefits packages across the private new laws are implemented. and public sectors, and encourage entrepreneurship and enter- That decision was followed by other steps to relax restrictions prise opportunities. Unusual for an OECD country, unemploy- on women’s freedoms. The government has already announced ment is higher for young, educated Saudis than it is for their that women will no longer be prohibited from attending public less-educated peers. Recognizing that, the plan emphasizes the sporting events, and a senior Saudi cleric recently suggested that need to strengthen higher education. Thus the government has women would no longer be required to wear the abaya and niqab proposed to re-examine the curricula of institutions of higher (full veil) when out in public. Other elements of the traditional, education to ensure that they are producing graduates with the “male guardianship” system remain intact, although the govern- skills the private sector demands. ment has pledged to permit women to travel abroad without a In a further attempt to steer more young Saudis toward careers male family member accompanying them. in the private sector, the government recently announced that by In many ways, these recent initiatives to enhance women’s the end of the year some businesses in the retail sector would no roles in society are a lagging indicator; Saudi women have been longer be permitted to hire non-Saudis. While past attempts at making steady inroads into historically male-only preserves for promoting “Saudization” of the economy have fallen well short of

42 MAY 2018 | THE FOREIGN SERVICE JOURNAL expectations—foreign nationals still constitute the vast majority Indications are that of employees in the Saudi private sector—the growing demand for jobs for Saudis and the public sector’s inability to satisfy that Saudi Arabia will remain demand both lend a new urgency to the effort. an authoritarian state, MBS is also shaking up his country’s power structure, which has long featured a dynamic tension between the ruling Al Saud with little scope offered family and the arch-conservative religious establishment that for popular participation. promotes the austere Wahhabi doctrine originally espoused by the 18th-century Islamic cleric Mohamed ibn Abd al-Wahhab. By asserting that the Saudi government would seek to place Saudi Arabia’s religious practices closer to the mainstream of Sunni Islam, thereby returning the country to its pre-1979 practices, sentenced to extended prison terms for their activism. In a stun- Mohamed bin Salman has taken steps to curtail the power and ning display of authoritarian power, late last year the government authority of the religious establishment. detained dozens of the country’s wealthiest and most prominent So, for example, his decisions concerning the roles and businessmen and senior government officials for weeks in the participation of women in Saudi society have upended decades five-star Ritz-Carlton Hotel in Riyadh, on allegations of corrup- of religious doctrine aimed at confining them largely to roles as tion. The detainees were held until they agreed to return to the homemakers. In addition, the government recently restricted the government billions of dollars—some reports suggest the final hitherto unchecked authority of the dreaded mutawa’een (reli- figure was in excess of $100 billion—in alleged corrupt payoffs. gious police) to enforce Wahhabi strictures. There is little doubt that corruption in Saudi Arabia is a signifi- These decisions are broadly popular with younger, urbanized cant impediment to economic reform. Steps by the government to Saudis (although likely less popular among more conserva- root it out would undoubtedly improve the business climate and tive religious elements and citizens in the religious heartland). attract greater foreign and domestic investment. Moreover, by all Similarly, steps to introduce aspects of “normal” urban life to the accounts, the government’s move against those accused of cor- country, including reintroducing movie theaters and permitting ruption was generally popular with Saudi citizens. music concerts, albeit still gender-segregated, have improved the In a March 18 interview with Norah O’Donnell of “60 Minutes,” quality of life for young Saudis and reduced intergenerational Mohamed bin Salman insisted that the Ritz-Carlton detentions frictions. were “extremely necessary.” But as one close observer of the Saudi scene has noted, the anti-corruption drive was the right thing to Dim Prospects for Political Change do, but done in the wrong way. The crown prince insisted that all In his first year as crown prince, Mohamed bin Salman, with of the procedures “were in accordance with existing and pub- the approval of his father, King Salman bin Abdul Aziz, has imple- lished laws,” but they do not appear so to many observers. mented the most sweeping changes in generations. But there is Instead of building systems to stem corruption through no indication that he intends to match his dramatic moves on the a strong legal framework and judicial review, thus building social and economic fronts with equally substantial reforms of the confidence in the rule of law, the state chose to shake down the country’s governing structures. In fact, indications are that Saudi accused in an opaque process without ever being called on to Arabia under King Salman and the crown prince will remain an prove the charges in court. By arguing that the action was justified authoritarian state, with little scope offered for popular participa- by a sense of urgency preventing the use of more formal legal tion, let alone peaceful political dissent. channels, the government lost an opportunity to build the kind of Authorities continue to arrest and imprison Saudi citizens framework that will benefit Saudi society over the long term. merely for criticizing the government or participating in peaceful For generations, the theory of governance in Saudi Arabia was protests. Nearly all members of the Saudi Civil and Political Rights that the population would accept the absolute rule of the Al Saud Association have been imprisoned for their pro-rights advocacy, family in return for prosperity and stability. The question, now, according to Human Rights Watch. Several bloggers and social therefore, is how reduction, or even the elimination, of core ele- media activists, including women advocating for improved wom- ments in the social safety net will affect the population’s expecta- en’s rights and the prominent blogger Raif Badawi, have been tions. Accommodating the demand of young Saudis for loosened

THE FOREIGN SERVICE JOURNAL | MAY 2018 43 societal controls will undoubtedly reduce pressure on the ruling family to allow for a greater popular voice in fundamental govern- ment decisions. But will that trade-off be enough?

The U.S. Interest in MBS’ Success Saudi Arabia has been a pillar of U.S. foreign policy and national security in the Middle East since the end of World War II, as well as a key partner in promoting global economic prosperity. In his comments welcoming the crown prince to the White House in March, President Donald J. Trump highlighted the broad scope of U.S.-Saudi cooperation in promoting regional security and stability. As the Trump administration sharpens its approach to Iran in the coming months, seeking to challenge its regional ambitions, ballistic missile programs and interference in its neighbors’ affairs, Saudi Arabia will be a critical partner. Moreover, the administration will look to Riyadh to assist in the reconstruction of Iraq and Yemen, the stabilization of Syria and efforts to resolve the Israeli-Palestinian conflict. For all these reasons the United States, which is counting heavily on Saudi support, has every reason to welcome the Vision 2030 initiative and to contribute to its success. In particu- lar, the U.S. business community has been deeply engaged in the initiative, and will benefit from its close ties to Saudi counter- parts. But we also have an equally strong interest in shoring up Saudi Arabia’s long-term political stability. Toward that end, Washington should do all it can to ensure that Saudi society has safe channels for airing dissent. It should also make the case to the Saudi leadership that its willingness to accept divergent views is an important component of our engagement. For as the experience of the Arab Spring suggests, when authoritar- ian regimes actively suppress dissent, the result is often an unhealthy build-up of pressures that leads to an unmanageable explosion of anger and frustration. As MBS and the Saudi leadership advance broad, sweeping changes in the fundamental fabric of their society, it becomes more important than ever that the population have access to acceptable, peaceful means to express its views on those propos- als. Part of the U.S. contribution to the success of the Vision 2030 project should therefore be continued engagement with the Saudi leadership, encouraging it to embrace greater popular participation in decision-making, more open political debate and a strong adherence to the rule of law. Such reforms can be as important to the overall success of the transformative project as the social and economic adjustments Vision 2030 is slated to bring to Saudi Arabia. n

44 MAY 2018 | THE FOREIGN SERVICE JOURNAL FOCUS ON DEMOCRACY USAID’s Citizens Voice Project in Pakistan aims to increase engagement between citizens and state institutions. SYEDA SAMEEN/COURTESY OF USAID Supporting Civil Society in THE FACE OF CLOSING SPACE Development professionals focus on the need to bolster and expand civil society’s “open space” in countries around the world.

BY MARIAM AFRASIABI AND MARDY SHUALY

am the last and only dictator in under broad assault worldwide, with restrictive legal frame- Europe; and, indeed, there are works, coordinated campaigns against public advocates and none anywhere else in the world,” members of political opposition, and undercutting of indepen- declared Belarus President Alex- dent media. Holding nominal elections and having a president ander Lukashenko in a memo- are fig leaves for rulers who brook neither dissent nor opposi- rable 2012 interview. tion. Crackdowns on civil society coincide with the suspension The reality, of course, is that of term limits and the hollowing out of legislatures. Lukashenko is part of a siz- These are features of “closing space”—a term for environ- able and growing club of lead- ments in which restrictions hamper the ability of civil society ers imposing brazenly dictatorial rule. Throughout the past and political actors to mobilize and operate. This phenomenon “Idecade, freedom of speech, assembly and association has been is becoming more severe, both in terms of the numbers of Mariam Afrasiabi is a senior adviser in the Civil Society and Media Division at USAID’s Center of Excellence on Democracy, Human Rights and Governance in the Bureau for Democracy, Conflict and Humanitarian Assistance. She previously served as a democracy and governance adviser in USAID’s Bureau for the Middle East. Mardy Shualy is a Presidential Management Fellow who worked in USAID’s DRG Center from 2017 to 2018. At USAID, he led the completion of the 2016 Civil Society Organization Sustainability Index, and contributed to agency policy for programming in closed spaces. Previously, he worked at the World Bank and served as a Peace Corps Volunteer in South Africa.

THE FOREIGN SERVICE JOURNAL | MAY 2018 45 Without an active civil Such determination must be matched by assistance provid- ers with systematic approaches to identifying and responding society empowered to hold to closing political and civic space. Bolstering civil society and a government accountable strengthening democratic governance are critical for achieving more prosperous and sustainable democracies and, ultimately, to its citizens, development for ending the need for foreign assistance. In such high-stakes investments will be environments, standard best practices for development and diplomacy are useful, but may be insufficient. unsustainable. USAID’s Approach to the Trend Authoritarian governments and nonstate actors have dem- countries implicated and the brutality of tactics employed by onstrated creativity and ruthlessness in dismantling civic space. both state and nonstate actors. Since 2015, the International Coercive tactics in one country are replicated and adapted to Center for Not-for-Profit Law states, more than 100 laws have local contexts by repressive regimes in other countries. Some been proposed or enacted by governments that restrict the examples are clear and direct. China, for example, shared its ability of nongovernmental organizations (NGOs) to regis- internet censorship and monitoring techniques with Iran, which ter, operate, receive foreign funding or assemble freely. And, used them to create a policed “Halal” intranet. Other cases according to CIVICUS, a global civil society alliance that involve indirect replication of style: Mexican drug cartels, for releases civic space ratings worldwide, only 13 percent of coun- tries are considered to have fully open civic space—and those countries contain only 3 percent of the world’s population. Private sector and civil society organizations (CSOs) that The Turn Toward play such a critical role in development have faced a mount- Dictatorship ing backlash in many countries. In some highly restrictive countries, the fabric of civil society has been deteriorating or n 2014 the student movement and civil society in destroyed because punitive laws and restrictions on foreign Igeneral started a cycle of demonstrations against funding make it near-impossible for local organizations to [Venezuelan President Nicolás] Maduro’s regime. operate. These trends are a growing concern in many countries That year, we started to see a heavy crackdown in where USAID and other funders work, forcing the closure of the way that the regime tried to control the situation projects that provide critical services, including fighting child in the streets—they used armed civilians to kill the marriage, advocating against gender-based violence, providing demonstrators; they started to jail people for being clean water and promoting nutrition among pregnant women in the protests and persecuted people for expressing and children. themselves. It wasn’t easy for anyone to assimilate Yet civil society has remained surprisingly durable and to the arbitrary behavior of the government, and we resilient. A radio activist in Belarus explained what drives him started to see how it was turning from a very bad gov- forward despite the repressive government’s efforts to suppress ernment to a dictatorship. At that moment, my NGO civil society: “Maybe I’m naive, but I believe in positive change. was focused on tracking people who were detained Nothing lasts forever. And nothing is a given. In order to come and disappeared through actions of the military. We to a democracy, and [one] that it is sustained for a long time, tracked more than 3,000 people, started using social we have to endure the severity of the dictatorship. We need to media to inform the public about it, tried to get legal learn from all the mistakes to avoid even thinking of going back. help to those who needed it and, at the same time, Freedom, rights and equality become real values only when crossed the whole country undercover, teaching Belarusians will naturally come to this understanding. Hence the activists about digital security to secure them against motivation. It is interesting to work in a country which has the digital threats. prospect ahead, where there are chances of a positive change. —Melanio Escobar, digital activist, Venezuela And, most importantly, this country is my motherland.”

46 MAY 2018 | THE FOREIGN SERVICE JOURNAL example, have followed the example of violent governments by hijacking opponents’ social media accounts to broadcast grisly displays of revenge. The chart on page 48 lists some of the common techniques used to close civic space, with specific country examples. Without an active civil society empowered to hold a government accountable to its citizens, develop- ment investments will be unsustain- able. USAID plays an instrumental role in the design, implementation and evaluation of innovative programs GLOBAL COMMUNITIES WEST BANK AND GAZA/ COURTESY OF USAID to respond to closing space. Our A Palestinian boy stands in front of his campaign poster urging his peers to elect him to approach includes long-term support a position on his Youth Local Council in Hebron, West Bank. Since 2012 USAID’s partner to civil society strengthening programs Global Communities has promoted youth involvement in democracy and local governance through these voluntary bodies, composed of Palestinian youth from 15 to 20 years old. worldwide. We collaborate with other agencies and interagency working groups of the U.S. government, as well as other actors, for a USAID also emphasizes a “big tent” approach to its activi- broad and coordinated approach to these thorny challenges. ties, engaging a broad array of activists, including journalists While there is no one-size-fits-all solution to closing space, and the private sector, to reinforce open civic space. When USAID has developed a three-pronged approach that codifies asked how he has changed his operations given closing politi- effective responses to common concerns: prevention, adapta- cal space, Charles Vandyck, a leader in West African civil soci- tion and continued support. ety development stated: “A lesson learned from years of cam- Prevention begins with identifying and tracking civil soci- paigning on social justice issues is that the most unexpected ety conditions. Tools like the USAID-supported Civil Society alliances often give the most impact. It brings new perspectives Organization Sustainability Index provide systematic analysis and entry points to the table, but most of all, it gives the cause of emerging trends in civil society, critical for identifying where credibility, legitimacy and, ultimately, power. And that, more risks and opportunities lie. CSOSI reports on the strength and than anything, is what matters.” overall viability of the civil society sector in more than 70 coun- Adaptation under changing conditions requires flexibility. tries in Africa, Asia, the Middle East, North Africa, Europe and If a government restricts the operations of nonprofit organiza- Eurasia, based on seven key dimensions: legal environment, tions, for example, a group can sometimes legally reincorpo- financial viability, organizational capacity, advocacy, service rate as a for-profit enterprise while pursuing similar goals. As provision, infrastructure and public image. repressive governments try to keep pace and adjust to CSOs’ USAID’s Legal Enabling and Environment Project tracks the changing behavior, civil society must constantly evolve to stay development of restrictive law, policy and regulatory propos- ahead of new impediments. When restrictive laws are passed, als. Blocking restrictive changes while they are in draft form USAID seeks opportunities to mitigate their impact on civil can be both easier and more effective than trying to repeal laws society, working with CSOs and governments to soften policy that have been passed and put into practice. Last year, LEEP’s enforcement. When governments seek to strangle CSOs with support provided direct technical assistance in 17 countries. cumbersome administrative requirements, assistance pro- Because of its intervention, laws or regulations were improved grams can provide legal and technical support, ensuring that in Congo-Brazzaville, Côte d’Ivoire, Somalia and Kosovo; the organizations can avoid disruption due to noncompliance. effects of restrictive laws or draft laws were mitigated in Indo- Finally, redressing closing space is a long-term commitment nesia, Moldova and Nigeria; and the initiative helped empower that requires continued support, even in the face of ongoing CSOs and civil society in numerous other countries. repression. When autocrats sense that foreign attention is wan-

THE FOREIGN SERVICE JOURNAL | MAY 2018 47 CLOSING SPACE: TACTICS AND EXAMPLES Tactic Description Country Examples Loose or Governments intentionally obscure the legal permissions Cambodia enacted a new Law on Associations and NGOs in August vague legal required for civil society actors and organizations. CSOs 2015 that, among other provisions, bans unregistered organizations can be dissolved under thin pretense, with the uncer- while vaguely defining which groups are required to register; requires frameworks. tainty driving self-censorship and undercutting long-term “political neutrality” of CSOs; and gives the Ministry of Interior full planning. control over registration.

Burdensome Governments impose odious registration requirements, In South Sudan, a 2016 law imposes substantial and costly registra- civil society impeding the establishment and operation of organiza- tion renewal, documentation and hiring requirements. It prevents organization tions. CSOs from engaging in activities other than those agreed on in advance with the government; requires expatriates to secure work registration. permits before arriving in South Sudan; and removes some legal recourse for CSOs appealing government decisions.

Denial of Broad provisions give restrictive governments license to The government of Azerbaijan has lost at least five cases before the registration. deny registration to any viable organization they view as European Court of Human Rights, which has found denials of registra- a potential threat. tion to violate the freedom of association.

Approval for Governments require organizations to screen individual In Ethiopia, charities and societies raising more than 10 percent activities. activities, allowing government agents to closely monitor of their income from foreign sources may not engage in activities activities and filter any unfavorable actions. listed in Article 14 (j-n) of the Charities and Societies Proclamation, including advancement of human and democratic rights; promotion of equality and rights of the disabled and children; conflict resolu- tion; and promotion of efficiency in judicial and law enforcement services.1

Unfavorable Governments have taken a variety of approaches to In Zimbabwe, some CSOs are forced by local authorities to pay taxes and fees. drain organizations’ resources—for instance, denying exorbitant fees (up to $1,000 per year) to carry out their work. If an tax benefits, levying fees and imposing stiff bureaucratic organization refuses, no Memorandum of Understanding is granted penalties for any noncompliance. and the CSO’s activities are not allowed to proceed. 2

Limits on Foreign funding can be a critical source of revenue for civil In October 2016, Bangladesh enacted the Foreign Donations Regula- external society, whether from diaspora groups, bilateral donors or tion Law, which includes new administrative hurdles and penalties for funding. multinational organizations. Governments have hampered foreign-funded NGOs for vague offenses such as “making derogatory civil society by taxing, diminishing or blocking such funding. statements against the Constitution and constitutional bodies.”

Restrictions Authoritarian regimes continue to stifle opposing voices; Since 2012, Russia has intensified a crackdown on freedom of on freedom of as activists have turned to the internet and social media expression online, threatening user privacy and secure communica- tion, and instituting greater controls over content. Measures such as expression and to communicate, repressive governments have kept pace with online censorship and digital attacks. local data storage laws make it easier for the authorities to identify assembly. users and access personal information without judicial oversight. While these measures are in the early stages of implementation—and the extent to which they can and will be enforced remains unclear— the message about greater state control is clear.

Criminalization. Some countries have criminalized failure to comply with In Egypt, a new, extremely restrictive NGO bill ratified by the presi- certain CSO law provisions, such as registration and dent in May 2017 gave a legal role to security and intelligence officials reporting. in deciding on the registration of NGOs and their ability to access domestic and foreign funding. Under the bill, violations carry very harsh penalties ranging from one to five years’ imprisonment in addi- tion to fines ranging from 50,000 Egyptian pounds (approximately $3,125) to one million Egyptian pounds (approximately $62,500).3

Government- To maintain a pretext of civil society without risking Russia provides grant funding to NGOs through the Presidential sponsored opposition, regimes frequently establish government- Grant Foundation for the Development of Civil Society. Though it organized NGOs (GONGOs) that act as proxies for the is possible to interpret these grants as a concession to restrictions competition. ruling regime, mimicking official positions while crowding on NGOs receiving foreign funding, the majority of the available out other civil society actors. resources went to pro-government groups. For others, the presiden- tial grants represent possible co-optation by the state, particularly as other funding options decrease in the face of legislative and other pressures. These groups must weigh whether accepting public financing places them at risk of becoming GONGOs.

Defamation. Regimes resort to smear campaigns to undercut CSOs’ President Duterte’s public statements in the Philippines against crit- legitimacy and popularity; labeling groups as puppets ics of his war against illegal drugs, including human rights groups, are of foreign powers is common, as are defamatory claims seen as attempts to silence dissent.4 against oppositional individuals.

Violence and Governments employ techniques such as attacks on In Iran, more than 700 human rights defenders and political activists, intimidation. peaceful demonstrators, threats to civil society organiza- such as Abdolfattah Soltani, remain in prison for their peaceful activi- tion personnel, arbitrary detention, arrest and prosecu- ties.5 In May 2016, a revolutionary court sentenced prominent Iranian tion with draconian sentences, forced disappearances, human rights activist Narges Mohammadi, who had been detained for extrajudicial killings, digital surveillance and the criminal- a year, to a total of 16 years in prison on charges of “membership in the ization of civil society internet use. banned campaign Step by Step to Stop the Death Penalty” and meet- ing with the former E.U. High Representative for Foreign Affairs.6

1 icnl.org/research/monitor/ethiopia.html 2icnl.org/research/monitor/zimbabwe.html 3 usaid.gov/middle-east-civil-society 4usaid.gov/asia-civil-society 5ipa.united4iran.org/en/prisoner/ 6amnesty.org/en/latest/news/2016/09/iran-shameful-16-year-sentence-for-narges-mohammadi-a-devastating-blow-to-human-rights/

48 MAY 2018 | THE FOREIGN SERVICE JOURNAL dering and support is waning, they act swiftly to eliminate opposition. Just as inter- rupting a medical regimen may induce drug-resistant disease strains, sporadic sup- port provides autocrats with opportunities to stifle vibrant civil society organizations, replacing them with so-called “government-organized non- governmental organizations” (GONGOs). GONGOs mimic civil society and effectively crowd out competing organi- PHOTOLUR/IREX/ COURTESY OF USAID A reporter in Yerevan, Armenia, scuffles with a police officer while covering a protest against the zations. demolition of a historic building in 2015. Diplomacy is a criti- cal complementary tool to development for promoting civil society in closing spaces. A More Resilient Landscape Diplomatic pressure must be applied, sustained and leveraged According to CIVICUS, almost one in 10 people live in a most strongly during politically tense periods; governments are country with fully closed civic space, and more than a third of most likely to attack civil society in the run-up to elections, for the world’s population lives in countries with repressed civic example. Multi-stakeholder initiatives such as the Community space. In the post-Cold War era, states around the world have of Democracies and Open Government Partnerships aim to gained independence and liberal freedoms, only to fall prey to serve as platforms to identify, alert and respond to threats to autocratic repression. democracy, and to support and defend civic space. Civil society For the U.S. government and its partners, operating in closing actors must also be included in conversations with high-level space demands exceptional considerations. Commitments to visitors, ensuring that they maintain visibility and are recog- accountability and transparency must be weighed against the nized as important players in the political process. Sustained risks posed to local partners. The benefits of a specific program efforts also depend on strengthening and expanding existing must be weighed against potential backlash to a full develop- CSO networks, pooling resources and cross-pollinating strong ment portfolio. Contingency plans for suspended access or ideas. Finally, donors and operating units working in closing spaces must create and maintain opportunities for staff to rou- n most countries in Africa, state and nonstate actors— tinely share challenges, resources and best practices to ensure Ithrough the use of restrictive legislation, policies and that the agency as a whole stays current with this cross-cutting judicial persecution, as well as physical attacks, threats trend. USAID offers a three-day, in-person course, “Supporting and detention of activists and journalists—stifle freedom Civil Society in Closing Spaces,” to its Washington and field- of expression, assembly and association. We realized that based officers to better equip them with the tools needed to most of these restrictions occur when civil society groups work in these highly challenging environments. USAID also speak out against a specific public policy. We also started recently launched an agencywide Closing Spaces Commu- to see that the restrictions increase during politically nity of Practice, which will build on the knowledge base of its sensitive periods, like elections and prior to constitutional members and their extended networks to disseminate informa- changes on term limits of political leaders. tion—including best practices and policy, as well as legal, con- —Charles Vandyck, West African tractual and operational resources—so that missions are better Civil Society Institute prepared to address closing space in individual countries.

THE FOREIGN SERVICE JOURNAL | MAY 2018 49 disrupted communications must be prioritized. Caribbean region to the exploration of innovative approaches to Donors must be as creative, adaptive and resilient as CSO part- financing and fundraising in South Asia and the Middle East. ners have been. Dependence on government funding cycles, reli- We hear grim stories from the field, but also stories of resil- ance on static indicators and outmoded procurement practices can ience and fortitude. Melanio Escobar, a Venezuelan cyber activist hamper our ability to operate nimbly in restrictive environments. who works to track individuals detained and disappeared by the We must continue moving toward more participatory design and military, explained his condition directly: “I don’t feel very flexible implementation of programs, matching programming safe, because I’m not safe.” But like so many activists, fear is not needs for partners in closing spaces with novel and unprecedented the end of his message. Escobar continued: “I feel like any- services. As our CSO partners are experimenting with different time something can go wrong, like in the case of many others; organizational forms, revenue streams and partnerships to fortify but it’s a fear that I have to face every day if I want to help my their operations, we as donors must also experiment, pilot and people. I know it does not sound logical, because it isn’t, but scale up efforts to match these changing landscapes. freedom and democracy are worth the risk.” One such effort is the Civil Society Innovation Initiative, a West African activist Charles Vandyck shared the impe- project funded by USAID, the Swedish International Development tus for continuing to combat closing space day-to-day that is Cooperation Agency and private philanthropic organizations, summarized in his daily credo: “I am a firm believer in people but led and driven by hundreds of CSO actors globally. CSII has power and the need to ensure that citizens are engaged and are launched six civil society hubs around the world that connect actively contributing to an Africa that is transparent, account- actors globally and pilot outside-of-the-box approaches to tackle able and just. I am fighting for a better Africa for future genera- issues ranging from resource scarcity in the Latin America and tions. Therefore, I must be motivated, always!” n

50 MAY 2018 | THE FOREIGN SERVICE JOURNAL FOCUS ON DEMOCRACY

Authoritarianism Gains IN SOUTHEAST ASIA

A new breed of autocrat seems to be taking root in Southeast Asia today. Is the “domino theory” finally playing out?

BY BEN BARBER

uthoritarian rule is spreading Today’s dominoes are not allies of Beijing or Moscow; nor do among Southeast Asian nations they practice central state economic planning. They are crony- today. In Thailand, Myanmar capitalist, one-party states. They grow like bamboo, which spreads (Burma), Malaysia, the Philippines, it shoots underground, past fences and across property lines and Singapore and Indonesia, a new borders. Tough, flexible and expansive authoritarian regimes such breed of autocrat is taking root. as Vietnam have inspired former U.S. allies in Southeast Asia such It seems that the old “domino as Thailand and the Philippines to stifle the press, curb democracy theory” is finally playing out; and quell critical voices that embarrass those in power. though not the original domino In the shadow of China’s rise to world prominence during theory, which served to justify U.S. intervention in Vietnam. the recent period, elected leaders, independent courts, rule of AAccording to that theory, if we failed to win the war in Vietnam, law, religious tolerance and protection for minorities are being communism would spread from Vietnam, Cambodia and Laos to threatened or dispensed with in many Southeast Asian countries. take over U.S. allies from Bangkok to Singapore and Jakarta. After Vietnam Ben Barber has written on foreign affairs since 1980 The United States poured two million American troops into and has published in various outlets including The Vietnam, Cambodia and Laos from 1965 to 1975, leaving 58,000 London Observer, USA Today, The Baltimore Sun, Americans dead and estimates of from 1.4 to 3.5 million civilian The Toronto Globe and Mail, The Huffington Post, and combatant deaths in Vietnam, Cambodia and Laos. Presi- McClatchy News and other publications. He was State dents John F. Kennedy, Lyndon B. Johnson and Richard Nixon Department bureau chief for The Washington Times, which nomi- told us that we had to keep doubling down on troops, weapons nated him for the Pulitzer Prize for a series on the Hmong in Laos, and air power to prevent the dreaded domino effect, which Thailand and the United States. From 2002 to 2010 he was a senior would end our way of life. writer for USAID. His photojournalism book, Groundtruth: Work, Advised by Gen. William Westmoreland and other hawks Play and Conflict in the Third World (2014), is available on Amazon. during the Vietnam War, successive presidents vowed to bring

THE FOREIGN SERVICE JOURNAL | MAY 2018 51 holiday, I saw people thin as rails sitting in cold damp houses and able to offer a visitor only unsweetened tea and candied vegetables. In a sharp contrast, Bangkok offered endless curbside restaurants providing prawns, fish, duck, rice and noodles. So that year, without softening its absolute control over politi- cal power one bit, the communist regime in Hanoi opened its borders to foreign investment and trade. It allowed farmers to sell their rice on the open market instead of to the government at discounted prices. In one year Vietnam shot up to be the world’s second-largest rice exporter.

The Reverse Domino Theory In the late 1980s, instead of the victorious North Vietnam- ese military forcing Thailand, Malaysia and the Philippines to become communist, the bustling Southeast Asian nations seduced the austere reds with an endless supply of consumer goods smuggled into Saigon. While government shops were mostly empty, the black markets sold Singaporean beer, Thai toothpaste, Malaysian pajamas, medicine, motorcycles, sugar, BEN BARBER Women on bicycle in poor and cold Hanoi in 1988, when the rice and televisions. This seduced the communist nations: they regime first allowed foreign reporters in. created crony capitalism with a socialist tinge. Murray Hiebert, a Southeast Asia expert with the Center for Strategic and International Studies in Washington, told me in a Today’s dominoes are not recent interview that although the United States spilled its blood and treasure in Vietnam, Cambodia and Laos, and then re- allies of Beijing or Moscow; engaged in the region under President Barack Obama, there is no nor do they practice central longer a tight American connection to Indochina. Vietnam, which Hiebert recently visited, is booming, but it state economic planning. seeks economic advantage out of closer ties to Washington. The United States recently sent an aircraft carrier on a friendly visit to Vietnam, a far cry from the days when U.S. warships attacked our troops home, only to find it impossible to escape the politi- North Vietnam. Meanwhile China is building the Belt and Road cal and military quagmire. The Soviet Union and China stood Initiative to spread trade and influence—and it is not talking behind the communist forces in Indochina, fueling fear that if about human rights. their surrogates won power in those desperately poor countries, Although the communists loosened central control over the this would pose a threat to America. In the end, the communist economy, the regimes of Indochina remained ready to imprison, forces won. They were willing to suffer deeper and longer than silence and punish those who would seek to seriously challenge we were. By 1975, our embassies were evacuated in Saigon, authority. So by 1990, when communism had collapsed globally Vientiane and Phnom Penh. So we sat back and waited for the as an economic system from Moscow to Beijing, Prague, East dominos to fall. Berlin and Indochina, Vietnam and its allies Cambodia and Laos But by 1988, when the unified Vietnamese government finally kept the authoritarianism at the center of their political systems allowed Western reporters in, it appeared that the communists alive. And that is now spreading to other countries in the region. had won the war but lost the peace. While people in Hanoi and China has advanced this process, its giant industrializing Phnom Penh suffered from hunger and lack of medicine, electric- shadow falling across countries where an ethnic Chinese trading ity and soap, the more capitalist economies from Bangkok to Sin- subculture has long been both admired and resented. In its early gapore were booming. While in Hanoi for the 1988 Tet New Year years of authoritarian capitalism, China showcased a non-West-

52 MAY 2018 | THE FOREIGN SERVICE JOURNAL BEN BARBER The only Khmer Rouge refugee camp in Thailand, shown here in 1988, was the most active in fighting the Vietnamese occupation of Cambodia just across the border. The camp was located on a main road leading to Bangkok, and many feared it would be the first “domino” to fall. But the Vietnamese never invaded, and the refugees were repatriated to Cambodia after the 1991 peace accord.

durable authoritarianism in the non-democracies,” Cornell Uni- China showcased a non- versity’s Thomas Pepinsky wrote recently in Australia National Western way to get rich and University's online publication, East Asia Forum. “What makes the politics of disorder a thorny problem for stifle opposition at the same Southeast Asian democracy is that these illiberal policies are time, without democracy or popular among many citizens,” Pepinksy added. respect for human rights. Islamic Militancy and Other Factors The failure of the 2010-2011 Arab Spring gave yet another boost to hardliners in Southeast Asia. From Egypt to Tunisia, ern way to get rich and stifle opposition at the same time, without Libya to Yemen, the fall of dictators led to chaos and Islamic mili- democracy or respect for human rights. The Chinese Communist tancy. Only the staunch monarchs in Morocco and the Persian Party showed it was possible to save face, crush the opposition Gulf kept the lid on and ensured domestic peace, at the cost of and still nurture a crony capitalism that supplied world markets. stifling the tender shoots of democracy. Russia, too, provided a boost to autocrats worldwide as Vladi- This virulent religious view has already joined the authori- mir Putin and his allies seized control of the Russian economy tarian trend in Southeast Asia. Indonesian politics is living in and media. Now Putin polls at 80 percent approval and has just the shadow of hardline Islamist groups, some of them linked to been elected for another six-year term. There is no alternative attacks on foreigners and Indonesian Christians. Other Islamic view permitted in the Russian media. fighters have taken over parts of the Philippines. “The real story of the state of democracy in Southeast Asia Other factors behind the growth of authoritarianism have is not the threat of contemporary reversal—it is the strength of been population growth and ethnic rivalries. Some countries

THE FOREIGN SERVICE JOURNAL | MAY 2018 53 The failure of the 2010-2011 burning villages, forcible recruitment as porters and other terror by Burma’s army. When peace talks seemed to bear fruit, the Arab Spring gave yet another fighting would reignite, possibly to gain support from the ethnic boost to hardliners in Burman people who are the core of the county. “Southeast Asia is and always has been well on its way to Southeast Asia. being a democratic abyss,” Dan Slater of the University of Michi- gan wrote recently in the East Asia Forum. The Trans-Pacific Partnership was to have linked together the U.S. economy with allies including Southeast Asia. But President Donald Trump pulled out of the accord, and it now languishes as China expands. A year after Trump’s inauguration, no one has such as the Philippines failed to provide or sufficiently promote been confirmed as assistant secretary of State for East Asian and contraceptives to limit family size, and so tens of millions of Pacific affairs. young men found themselves without land or jobs. Ethnic rival- The ASEAN countries want trade with China but also want ries could be kept from erupting by authoritarian regimes. U.S. engagement in the region’s markets and diplomacy “as a Burma has long used fear of restive separatist minorities to hedge in case China gets rough,’’ says Hiebert. rally support for the most violent military repression. Karen, It seems that the post-Vietnam War period, now receding in Kachin, Shan and other hill tribe fighters who made it through the rear-view mirror, was a booming time of openness, which malarial jungles to the Thai border told us of rape, murder, may not survive the belated fall of the new dominoes. n

54 MAY 2018 | THE FOREIGN SERVICE JOURNAL FOCUS ON DEMOCRACY

Democracy in Indonesia A PROGRESS REPORT

On the 20th anniversary of its democratic experiment, Indonesia can cite significant gains. Growing challenges may threaten that progress.

BY EDMUND MCWILLIAMS

ith a population of more product now exceeds $3,500. And despite the weight of decades than 260 million and of dictatorial rule, post-Suharto Indonesia has made steady prog- an economy that ranks ress toward becoming a full and functioning democracy. tenth in the world, That evolution was not widely expected. Many Indonesians Indonesia appears who had served in the Suharto administration declared in the destined to be one of wake of the dictator’s fall that Indonesia was “not ready for the major international democracy.” As others ruefully observed, however, “That is what players of the 21st the Dutch told us.” century. Since the 1998 Those who had faith in the promise of Indonesia’s democratic overthrow of H. Muhammad Suharto’s dictatorship, the country experiment have largely been vindicated. In addition to Parlia- Whas cut its poverty rate in half, and its per capita gross domestic ment and other political institutions, an array of nongovernmen- tal organizations focused on the defense of democracy, human Edmund McWilliams, a retired Senior Foreign Service rights and the environment have emerged. It is also noteworthy officer, was political counselor in Jakarta from 1996 to that just one of Indonesia’s presidents in the post-Suharto era has 1999. Between 1975 and 2001, he opened and served been a military figure. in U.S. embassies in Bishkek and Dushanbe, and also Still, the country faces many of the same challenges today that served in Vientiane, Bangkok, Moscow, Kabul, Islam- it faced 20 years ago. An entrenched elite who benefited from abad, Managua and Washington, D.C. Since retiring from the Service, years of association with the Suharto regime, including those he has volunteered with U.S. and foreign human rights nongovern- with ties to the powerful Indonesian military, remains in place. mental organizations. Despite the sharp reduction in poverty, half the population is The author dedicates this article to the memory of Isa Gartini, a economically vulnerable and, according to the World Bank, the longtime employee of Embassy Jakarta who worked tirelessly to im- wealth gap is growing. Uneven health and educational services, prove the observance of human rights and promote democratization and the activity of radical sectarian elements create additional in Indonesia. She passed away in January. social pressures.

THE FOREIGN SERVICE JOURNAL | MAY 2018 55 Vice President Megawati Sukarnoputri. Megawati lost her 2004 election bid to Susilo Bambang Yudhoyono, a retired general who, as a minister in Wahid’s gov- ernment, had refused to support his call to declare a state of emergency. And in 2014 President Joko Widodo (popularly known as Jowodi) defeated a field of candidates that included major military figures. Political transitions and governance at the provin- cial and local level have not COURTESY OF USAID always been as democratic IFES/ A woman votes in the 2014 parliamentary election in Aceh. as those at the national level, to be sure. Significant economic and judicial cor- Political transitions and ruption, as well as the extensive role and power of the Indone- sian military, continue to influence political campaigns, party governance at the provincial candidate selections and elections. and local level have not always At the same time, respect for personal freedoms in Indo- nesia is constrained by what Amnesty International describes been as democratic as those as “broad and vaguely worded laws” that are used to “restrict personal rights, notably the right to free expression and of peace- at the national level, to be sure. ful assembly and association.” Many of these statutes date to the Suharto era, and some back to the period of Dutch colonial rule. The criminal code includes articles criminalizing “rebellion,” Political Transitions and Human Rights “incitement,” “defamation” and “blasphemy.” These crimes, During the past 20 years Indonesians have chosen national which are not well-defined, have served as the basis for charges leaders four times, first through parliamentary elections and against all manner of dissent, and even peaceful protest. The U.S. then direct popular elections. Those elections have proceeded State Department’s annual 2016 human rights report for Indone- without significant violence or irregularities and, with one excep- sia notes that “elements within the government applied treason, tion, the subsequent transitions have complied with the Indone- blasphemy, defamation and decency laws to limit freedom of sian Constitution. Yet even that case suggests strong support for expression and assembly.” For its part, Amnesty International civilian rule. counts at least 38 prisoners of conscience in Indonesian prisons. In 2001 the country’s armed forces refused to obey the orders Religious and other minorities, including LGBT organiza- of Abdurrahman Wahid, the nation’s first democratically elected tions and citizens, face harassment, intimidation and violence, president, when he sought to declare a state of emergency to especially from militant Islamists. The government does not head off his removal. Instead, 40,000 troops marched into the effectively protect minorities from such violence, and sometimes capital with guns pointed at the presidential palace. Parliament actually stokes it with inflammatory rhetoric. then voted to remove Wahid from office, replacing him with The National Human Rights Commission is not an effective

56 MAY 2018 | THE FOREIGN SERVICE JOURNAL body in addressing systematic or specific abuses. The body has significant influence over political party activity at the local, no formal powers of investigation, such as subpoena power, and provincial and even national level. the government is not obliged to act on its recommendations. Its Security force members are regularly and reliably accused of reports have not led to effective prosecutions, even in notorious arbitrary arrest and brutalization of prisoners, including beat- cases like the 2005 murder of a prominent human rights advo- ing, torture and killing. The U.S. State Department notes that in cate, Munir Said Thalib. addition to the military, many police officers also fail to conduct themselves in a manner that protects Indonesia’s democratic Press Freedoms Grow, But ... institutions and values. Its Indonesia human rights report cites The Indonesian media scene in 2018 is vastly different from “police inaction, abuse of prisoners and detainees, harsh prison that of the Suharto era, when government censorship and self- conditions and insufficient protection for religious and social censorship characterized print and broadcast media. Indonesian minorities.” media today are robust and largely free of government control Command responsibility is not acknowledged in these and sanction. abuses, and when officers are charged the investigation is inter- Nevertheless, journalists, and sometimes publishers, face nal. In the rare event of a conviction, perpetrators receive admin- extra-judicial threats and sometimes violence by entrenched istrative actions and sentences that are not “commensurate with economic elites and religious organizations. Security forces, the severity of [the] offenses,” as the State Department’s human either acting in league with these interests or on their own behalf, rights report puts it. This absence of appropriate justice encour- are often the agents of intimidation and violence. The corrupt ages security force personnel in such conduct and intimidates Indonesian justice system gives those who are targets of critical the general population. media treatment over corruption and other abuses avenues to In 1999 the people of East Timor voted in a United Nations– challenge journalists, publishers and NGOs in the courts. supervised referendum for independence from Jakarta. The vote, The U.S. State Department’s annual human rights reports which was undertaken under conditions of severe intimida- for Indonesia have consistently noted that “elements within the tion by Indonesian security forces, resulted in the death of an government, judiciary and security forces obstruct corruption estimated 1,500 East Timorese and the physical destruction of investigations and harass their accusers.” The same can be said approximately 80 percent of the country’s infrastructure. Despite of efforts by security forces and other government elements to rulings by U.N. tribunals, Indonesian security force officials still block investigation of abuses of human rights, including crimes have not been punished for these crimes, much less for those against humanity dating back to the birth of the Suharto dictator- carried out during their 24-year occupation of East Timor. ship in 1967. Six years later, the Indonesian government and separatists in the province of Aceh reached an accord, ending a decades-old Security Force Impunity conflict in which the abuse of insurgents and civilians had been The armed forces’ political and economic clout remains rampant. In the Suharto and early post-Suharto era, the Indo- essentially unchallenged. Ever since its founding, the Indone- nesian military, acting in part to defend commercial interests sian military has derived funds from legitimate and illegitimate including logging and drug running, employed tactics developed businesses, as well as rent-seeking relationships with national in similar repression campaigns in Papua and Indonesia-occu- and international enterprises operating in Indonesia. Because pied East Timor. its responsibility is based on a concept of “dwi fungsi,” or two The 2005 peace settlement was memorialized in a memoran- functions, the military is empowered to play both a defense role dum of understanding that pledged formation of a human rights and a sociopolitical role. The latter, its “territorial” role, involves court and a truth and reconciliation commission to address maintaining a security, political and economic presence down to decades of security force abuses. Thirteen years later, the govern- the village level. ment still has not created either body. This “territorial” role is supported by intelligence operations that include both monitoring of and sometimes involvement The Special Case of West Papua in local political activity, especially dissent and media activ- Papuan resistance to Indonesian control has been active since ity. Through this involvement of active military forces, and in 1969, when Jakarta, in violation of its commitments under a 1962 collaboration with retired military officers, the military retains U.N. mandate, forcefully annexed the province. Government-

THE FOREIGN SERVICE JOURNAL | MAY 2018 57 Corrupt and impervious to The Challenge of Ethnic Diversity The Suharto dictatorship recognized the potential for insta- calls for its accountability bility posed by the archipelago’s religious, ethnic and racial before the Indonesian diversity. While the dictatorship enshrined Javanese dominance of this multiethnic society, it carefully balanced and contained judiciary, the Indonesian potential challenges to the system, especially as posed by the military conducts itself very dominant faith, Islam (87 percent of Indonesians are Muslim). Leading Islamic organizations, notably Nhadlatul Ulama, played much as a Suharto-era a central role throughout the Suharto era in creating space for religious tolerance among Indonesia’s Buddhist, Hindu, Chris- institution. tian and Islamic confessions. In the latter years of Suharto’s reign and since, however, foreign funding for establishment of Islamic boarding schools organized transmigration of Indonesians from other islands to (called pesantren) and other Islamic institutions has grown sig- West Papua has marginalized the native Papuans as resources nificantly. Most of that funding has come from Arab Persian Gulf and assistance programs are diverted to the new arrivals. states and has promoted the ultraconservative Islamic doctrine For the most part, local resistance has been nonviolent, yet of Wahhabism. security forces often attack peaceful demonstrations. There is a Indonesia’s history of tolerance among Islamic sects and small armed movement, but it is largely rural and poorly armed; toward non-Islamic faiths, based on Indonesia’s founding plural- it targets security force personnel and installations, as well as ist philosophical principle of Pancasila, is diminishing. A growing some corporations exploiting West Papua’s vast economic riches. intolerance has not only fueled anti-Christian prejudice, but has In response, the Indonesian military conducts sweeps that force targeted other Islamic groups, notably the Shia, Ahmadiyya and whole villages to flee to surrounding forests and mountains, Kebatinan (a syncretic amalgam incorporating Hindu and Bud- where they have inadequate access to food, medical assistance dhist traditions). and shelter. In addition, Indonesian special forces murdered Anti-Christian prejudice is fueled in part by the significant the Papuans’ most prominent nationalist leader, Theys Eluay, in proportion of Indonesian Christians who are of Chinese ethnic 2001. The perpetrators received minimal sentences. background. The Chinese-Indonesian community has often been The Indonesian government has long impeded coverage of a scapegoat in times of political and social tension because of its pervasive human rights abuses in West Papua. In policies and the wealth they are reputed to possess. For example, during the practices that have not changed substantially since the Suharto widespread street violence that preceded the 1998 downfall of era, the government prevents journalists, researchers, human the Suharto regime, organized in part by elements in the Indo- rights monitors and others from traveling to and working in nesian military, Chinese communities were specific targets. And the province. Through a “clearing house” comprised of secu- in 2017, Vice President Jusuf Kalla claimed that “inequality” was rity forces and various government ministries and agencies, it driven by religious differences. severely restricts access; those few observers allowed to visit The emergence of militant Islamic groups, such as the Islamic endure restrictive itineraries and invasive monitoring. Papuans Defenders Front, Hizbut, Tahrir Indonesia and Laskar Jihad has believed by the government to have cooperated with journalists further undermined Indonesia’s traditional tolerance. Several of and human rights monitors are singled out for harsh, extra-legal these groups have benefited from cooperative relations with the retribution. Indonesian military, enabling them to commit violence against Through these restrictions, the post-Suharto administra- religious and secular organizations, businesses and individuals tions have prevented international monitoring of crimes against who do not adhere to their strict religious precepts. humanity extending to ethnic cleansing and what knowledgeable The intrusion of religious and ethnic intolerance into Indone- observers have described as “creeping genocide” in West Papua. sian politics appears to be escalating. In 2017 Basuki Tjahaja Pur- Like his predecessors, Pres. Widodo has pledged to reform Indo- nama (aka Ahok)—the governor (mayor) of Jakarta, one of the nesia’s approach to dealing with Papuans, but these pledges have most powerful political positions in the country—was defeated yet to bear fruit. in a re-election bid. Ahok had been vice governor of Jakarta and

58 MAY 2018 | THE FOREIGN SERVICE JOURNAL was elevated to the governorship when Jakarta’s then governor, Joko Widodo, was elected president of Indonesia in 2014. Despite very high job-approval ratings, Ahok’s loss was widely seen as the result of his Chinese-Chris- tian lineage. However, another fac- tor was the release of a video of an Ahok speech that had been altered to make it appear he was insulting Islam. The winning candidate, Anies

Baswedan, ran an explicitly sectar- DORMAN SHAWN In May 1998 Indonesian students demonstrating for democracy and for President Suharto to ian campaign and appeared before step down took over the Parliament compound. This photo was taken after Suharto had ceded the radical Islamic Defenders Front power to his vice president, B.J. Habibie. The red banners read “Return wealth to the people” to court its support as a Muslim. (far left), “We Reject Habibie” (middle) and “Justice for Soeharto & Co” (far right). Adding insult to injury, shortly after his defeat Ahok was convicted of blasphemy, and is cur- repressed democratic and pro-independence activists much as rently serving a two-year sentence. it did in East Timor and Aceh. Its influence in the political realm and its access to significant financial, training and other assis- An Uneven Record tance from abroad, including the United States, render it largely Indonesian democracy has made impressive strides, immune to ongoing calls for reform. particularly in light of its long repression. The rapid emer- Advocates of U.S. assistance to the Indonesian military have gence of nongovernmental organizations focused on defense long argued that such support, in particular training for senior of democracy, human rights and the environment incubated a Indonesia officers, exposes the Indonesian military to U.S. mostly young cadre of Indonesians who have played substan- values and the proper role of the military in society. Critics of tial roles in assisting at the birth of Indonesia's democracy. this support point out that some of the most egregious human Their vision and courage, along with that of a vibrant print and rights abuses were committed during the Suharto years, when broadcast media, have provided a stable basis for its further U.S.-Indonesian military cooperation was broadest. Critics also development. Yet the country continues to face many of the point out that some of those Indonesian military officers with same economic and political challenges it confronted when the strongest ties to the U.S. military, including Generals Wiranto and Suharto regime fell. Prabowo, have the darkest human rights records. These critics of While poverty rates have been cut in half over the last 20 U.S.-Indonesian military ties argue that the prospect of U.S. assis- years, 10 percent of the population remains below the poverty tance should be employed to press for reforms of the Indonesian line; another 40 percent is described by the World Bank as vul- military. nerable to falling below that line. The World Bank also notes that U.S. government support for democratization and respect the wealth gap is growing. Radical sectarian elements, particu- for human rights has included training and other assistance larly militant Islam, as well as political opportunists among the for the Indonesian police. The national police force neverthe- old elite who fear the rise of democratic forces, will undoubtedly less remains significantly corrupt, and its human rights record, continue to exploit the resulting social unrest to destabilize the including treatment of detainees, remains a problem. U.S. democratic process in Indonesia. government support for and cooperation with Indonesian NGOs, Corrupt and impervious to calls for its accountability before especially those advocating reform and respect for human rights, the Indonesian judiciary, the Indonesian military conducts itself has had a positive impact. very much as a Suharto-era institution, with no strong commit- Accordingly, despite significant progress and the courageous ment to the observance of human rights or democratic norms. work of its reform-minded citizens, Indonesia’s democratic This is especially apparent in West Papua, where it has ruthlessly experiment remains very much a work in progress. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 59 AFSA NEWS NEWSTHE OFFICIAL RECORD OF THE AMERICAN FOREIGN SERVICE ASSOCIATION

THE STATE OF STATE Burns and Stephenson Discuss the Future of Diplomacy

On Feb. 27, AFSA President need to work together Ambassador Barbara Ste- if we are to be suc- phenson and Ambassador cessful. (ret.) Nicholas Burns joined “The United States forces to give a presentation is strongest when we on “The State of the State integrate our ability to Department.” project force—that’s Hosted by WorldBos- the military—[with] ton and held at the Boston our ability to negoti- Public Library, the event was ate and get our way attended by approximately without firing a shot, 250 local professionals, stu- integrating diplomacy dents and interested citizens. and defense,” Burns Amb. Stephenson spot- argued. “We have the lighted the role of the Foreign greatest military in the Service in boosting the U.S. world. We never want economy: “Diplomats are at to be number two or AFSA/LINNEA GAVRILIS AFSA/LINNEA work every day ensuring that Ambassadors Nicholas Burns and Barbara Stephenson answer audience questions three after China or U.S. businesses face a level at the Boston Library on Feb. 27. Russia. … But we’ve playing field overseas, that got to have first-rate procurement processes are to do with international life, of our civilian forces. “We diplomacy. And we’re in dan- transparent and fair, and that all of that’s $58 billion. Just negotiate peace for the ger of losing it.” American companies, which the increase [in the proposed United States. We intervene Amb. Burns ended his don’t pay bribes, get a fair military budget] exceeds in the toughest situations. remarks with a discussion shake,” she explained. everything we do on the civil- Our people are on point, in of the opportunities ahead. Diplomats even work on ian side. That’s not smart, and dangerous situations.” Of him- “There’s a lot at stake that behalf of people who never it’s not right.” self and Amb. Stephenson, challenges us,” he said, telling plan to leave the United It is difficult to describe he noted: “We’ve both faced the audience that we can States, she told the crowd. diplomatic successes, terrorist threats to us and our contribute to poverty allevia- “U.S. diplomats, working with explained Amb. Stephenson, families in our career.” tion and to eradicating polio Customs and Border Protec- “in part because, done well, This is a time of “existen- “if we have the money in the tion colleagues, negotiated our work is often nearly invis- tial challenge” for our country, State Department budget to for years with the European ible.” Diplomats don’t have said Burns. “We’ve been the fund vaccine programs, and if Union to reach an agreement uniforms, she told the crowd. primary power in the world we have the diplomats to run making it possible to share “We don’t have tanks, or ships over the last 73 years. We them.” passenger name records” or missiles. What we have is spend more in our defense “These are great positive for every flight originating in our people.” … than the next 10 countries goals, along with the firefight- Europe and landing on U.S. Diplomatic prowess is combined, and no other coun- ing that we have to do. But it’s soil, making all Americans used to channel all of the mili- try has the cultural appeal, going to be civilians and mili- more secure at home. tary, economic and cultural or soft power, that we have. tary together,” he said. “If you During his remarks, Amb. power of the United States We’ve got this big responsibil- fully fund one and don’t fund Burns argued that the cost to “into global leadership that ity to use this power wisely.” the other, America is going to fully fund diplomacy is minus- has kept us safe and prosper- But, he noted, we cannot be weaker, less capable and cule: “Everything we spend ous at home,” she added. maintain a global leadership certainly less successful.” under the sun in the United Amb. Burns echoed her role through our military Watch the video at http://bit. States of America that has thoughts on the importance alone—soldiers and civilians ly/State-of-State. n

60 MAY 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS AFSA NEWS

as an integrated team, and “Deep Dish” Podcast Interviews AFSA President at our best we just worked seamlessly under the Ameri- AFSA President Ambas- State Department is and what things done. … The presence can flag.” sador Barbara Stephenson Foreign Service officers do for of the U.S. Foreign Service When asked what she joined the Chicago Council our country. around the world is the foun- plans to tell the incoming on Foreign Affairs forits Deep “We in the Foreign Service dation for America’s global Secretary of State, Amb. Dish podcast on March 15. maintain a home leadership role Stephenson said that she She discussed cuts at the base called favored by nine in would ask that he “use us as department, our country’s the American 10 Americans.” fully as possible so that we anomalous use of political embassy in Amb. Stephen- can contribute meaningfully appointees, partnering with nearly every son also explained to the mission that Congress the military and the chal- country in the why senior military gave us, which is to shape and lenges diplomats face when world,” Amb. Stephenson leaders have been so vocal implement America’s foreign forming and implementing explained. “Real Americans in supporting a strong State policy.” foreign policy. like me run and staff that Department. Throughout her You can listen to the com- As the podcast opened, embassy. We speak the local career, she said, diplomats plete podcast at https://www. host Brian Hanson asked language. We understand that and members of the military thechicagocouncil.org/blog/ Amb. Stephenson to explain country’s history and culture, “spent a lot of our time work- global-insight/deep-dish- to his audience what the and we know how to get ing together out in the field inside-state-department. n

AFSA Hosts Networking Happy Hour CALENDAR

May 1 May 4 On March 28, AFSA wel- 12-2 p.m 5-6:30 p.m. comed members and Seminar: “Long Term Care” AFSA Foreign Service Day Reception nonmembers alike to a May 3 networking happy hour at its 11 a.m.-5 p.m. May 8 AFSA Open House D.C. headquarters. This was 12:30-1:30 p.m. (and complimentary Luncheon: 16th Consular a great opportunity for AFSA professional headshots) Fellows Class members to meet and social- May 3 May 15 ize, as well as for nonmem- 12-1:30 p.m. 12-1 p.m. bers to learn about AFSA’s AFSA Book Notes: Foreign Affairs Retirees of role in promoting the Foreign Our Woman in Havana Maryland and D.C. Host Service. AFSA is planning May 3 AFSA President more happy hours in the near 2-2:30 p.m. May 16

future—contact member@ DORMAN AFSA/SHAWN Workshop: “How to Write a 12-1:30 p.m. A-100 classmates Frances Chisholm Concise Professional Bio” AFSA Governing afsa.org to find out more. n and Phil Skotte catch up at AFSA HQ. May 3 Board Meeting 3-4:30 p.m. May 25 Workshop: “Advocating for Deadline: AFSA Dissent and the Foreign Service in Your Performance Local Community” Award Nominations May 4 June 3-8 4:15-4:45 p.m. AFSA Road Scholar Program AFSA Memorial Ceremony Chautauqua, N.Y. AFSA/ASGEIR SIGFUSSON AFSA/ASGEIR

THE FOREIGN SERVICE JOURNAL | MAY 2018 61 AFSA NEWSSTATE VP VOICE | BY KENNETH KERO-MENTZ AFSA NEWS

Views and opinions expressed in this column are solely those of the AFSA State VP. Contact: [email protected] | (202) 647-8160

It Can’t Be Easy

Being in the Foreign Service During my assignment No matter where you go or whom you is fantastic, but it’s hard. in Brazil, locals would goad meet, everyone already has an opinion, I’m not even talking about me, in a good-natured way, whether right or wrong, about the United the daily demarches, cables, about Americans’ lack of meetings and taskers. I’m global knowledge. “Ameri- States. talking about the challenges cans think Brazilians speak we face today when explain- Spanish,” they’d complain, It’s got to be tough to an opportunity for our next ing U.S. foreign or domestic “and they think Buenos explain events at home. generation of leaders. policy—or even just every- Aires is our capital!” Historically we’ve spoken Lead as a mentor. Lead day events—to an inter- It’s not easy to defend from a place of strength and as a colleague. Be there and national audience, often a against this. But slowly, I’d humility, acknowledging our listen to what your subor- highly skeptical one. begin to turn the questions shortcomings but still press- dinates are saying, when When we meet with AFSA around on my new friends. “I ing for the high road. Does they’re unsure about our members during these know, but the United States that still work? How do we mission, when they’re ques- chaotic times, we hear over is so far away,” I’d smile. talk about alleged Russian tioning how we’ll make it and over again that people “So, what’s the capital of meddling in our election? through the coming months need open and honest dis- Guyana, your neighbor?” I’d Sexual harassment? How and years. The best bosses cussions within offices and ask. Blank stares. I’d follow about gun violence? When inspire, reassure and moti- missions around the world up with “And what language yet another school shoot- vate. They foster dialogue about the state of State, and do they speak in Suriname?” ing happens, how can we and remind folks about what of our nation. I’ve spoken Sheepish grins appeared; explain that? makes us strong. Be open with many of our AFSA post inevitably a round of drinks With so much chaos in and honest with your teams. reps overseas: Those who would be bought as the our own country, how can These days aren’t normal. report that morale at post point was made. we craft and support U.S. But despite the chaos, we’ll remains high also report At the end of the day, foreign policy, protect U.S. get through this. Together, that their leadership has most folks don’t know much national security and defend we’ll emerge stronger, but encouraged open dialogue about anything that doesn’t American interests all over only if we support one about the uncommon directly affect them. the world? Where do we another. We need our own challenges facing those of These days I tip my hat focus our efforts? Foreign Service leaders to us representing our great to my colleagues serving As we watch many in guide us during times of nation to the world these overseas. It can’t be easy to our senior ranks depart, I change, to provide reassur- days. explain U.S. foreign policy, have an urgent request for ance and move us forward. There’s one thing about or our domestic situation, or those of you still on the job: And we need to look being an American abroad our political problems. When Lead. So many of our Career inside ourselves to be the that’s particularly tough. the president refers to host Ambassadors, Career Minis- leaders we need now. n No matter where you go or countries with expletives, ters and others in the Senior whom you meet, everyone that can’t be easy to explain. Foreign Service have left in already has an opinion, When policies (or even lead- the past 16 months. That whether right or wrong, ers) change at the drop of a loss is palpable. You can feel about the United States. tweet, that can’t be easy to it at Main State. You can cer- That’s not necessarily the explain. And when our long- tainly feel it at our missions same for any other country standing global leadership overseas, where many of our on earth. I mean, what do position is diminished from posts are still without their most Slovakians think about Washington, causing skit- ambassadors. Coupled with Bahrain, or most Sri Lank- tishness among our friends everything else, it can get ans about Bolivia? I could be and allies around that world, a guy down. But all of this wrong, but I bet not much. that can’t be easy either. can maybe—just maybe—be

62 MAY 2018 | THE FOREIGN SERVICE JOURNAL FAS VP VOICE | BY KIMBERLY SAWATZKI AFSA NEWS

Views and opinions expressed in this column are solely those of the AFSA FAS VP. Contact: [email protected] | (202) 720-3650

Looking Back, Moving Forward

The FAS AFSA office recently ities and women occupied an inching forward over many toward equality. underwent a renovation, increasing but still small per- decades, rights for gay offi- Can we finally achieve which forced me to sort centage of non-administrative cers were not seen as an issue equal pay and proportional through decades of files. positions in the agency. until the 1990s. In fact, prior representation in high-level Because some of my pre- As a second-generation to 1995 a security clearance positions for minorities and decessors were document FAS Foreign Service officer, could be denied solely on the women? Will the #MeToo collectors, I discovered a I got a glimpse of the old basis of sexual orientation. movement help eliminate treasure trove of history hid- days in those files. During It was not until 1998 that a sexual harassment in the den in those files. my father’s first overseas presidential executive order workplace? When will the The stacks of old FAS assignment, his evaluations barred discrimination based government finally offer paid newsletters, phone lists and included a section on my on sexual orientation in the maternity/paternity leave? other documents will soon mother’s entertaining skills federal workplace. How soon will other under- move to a new home in the and general comportment. It Progress for women, served and under-represented archives of the National was not until 1972 that this minorities and the LGBTI groups achieve advancement? Agricultural Library. But in the section was officially abol- community has come in the Slow progress is still prog- meantime, I am fascinated by ished. That same year, the form of societal transforma- ress, but we have the power how things have evolved in Foreign Service also stopped tion, legal action, trailblazers to speed things up. I hope FAS, particularly for women forcing female FSOs to resign and allies who supported future FSOs will look back at and minorities. In 1930, all FAS after they got married. change. Although our work- current times with surprise at attachés were white males. While progress for women force is increasingly diverse, how much has evolved since Over the next 50 years, minor- and minorities has been we are still on a long road today. n

Telling Our Story: Outreach at AFSA

AFSA’s outreach efforts AFSA has also engaged Stephenson has a packed she is expected to address an continue as we head into the with retiree members on our schedule in the coming audience of 4,000. summer months. After close annual effort to place letters weeks and months, as well. We continue to encour- to 40 speaking engagements to the editor in newspapers After a high-profile age retiree members to join across the country in Janu- around the country ahead appearance alongside the AFSA Speakers Bureau. ary, February and March—in of Foreign Service Day on Ambassador (ret.) Nicholas Members of the bureau have places ranging from Ames, May 4. Last year, we had 54 Burns at the Boston Public access to regularly updated Iowa, to Minneapolis, Min- placements and look forward Library in February (see page talking points and speaker nesota—our Foreign Service to reporting on what we hope 60), In May, Amb. Stephen- resources, as well as early retirees remain committed will be an even greater suc- son will meet with the Foreign access to AFSA event regis- to telling the story of the cess this year. Affairs Retirees of Maryland tration. Foreign Service from coast to AFSA board and staff and Washington D.C. In June, It’s an ideal vehicle for coast, explaining to their fel- members also do their part. she will speak to a large channeling your desire to be low citizens what diplomats On Foreign Service Day, Oasis lifelong learning class engaged and allows mem- do and why it matters. In former outreach coordinator in Maryland. bers to be part of the ongoing addition, 12 retired members Dr. Catherine Kannenberg In August, Amb. Stephen- effort to enlarge the U.S. of the Foreign Service spoke will speak to the Charlotte son will be a featured speaker Foreign Service’s domestic at a Road Scholar educa- International Rotary Club in during the summer season at constituency. tional program in Washing- Charlotte, N.C. AFSA Presi- the Chautauqua Institution Learn more at www.afsa. ton, D.C., in April. dent Ambassador Barbara in Chautauqua, N.Y., where org/speakers. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 63 WHERE WE STAND | BY JULIE NUTTER, PROFESSIONAL POLICY ISSUES DIRECTOR

EER Season: Thinking About the Precepts

It’s EER season again. forges a link in a long chain knowledge, deep wells of by independent panels, and The first step in crafting a of responsibility Foreign Ser- language expertise or a the system has served the persuasive EER is a review of vice members have as stew- foray into mentoring that Foreign Service well. A 2010 the Foreign Service promo- ards of the Service. Tying will pay off in future tours. State Department Inspector tion precepts, or “competen- your day-to-day work or that Accomplishments this year General report examined the cies”—the skills, knowledge of your employees to mis- might be skewed towards panels, their work and their and abilities required to sion, bureau or overall U.S. how you used that new findings and concluded that advance to the next level. foreign policy goals makes it knowledge or your men- the system is “fundamen- Two characteristics of the clear that the annual promo- toring role to guide newer tally fair and trustworthy.” A current precepts stand tion panel process not only employees or inter-agency 2013 Government Account- out—their flexibility and maintains high standards colleagues, rather than ability Office report con- their comprehensiveness. of corps performance, but how you used your skills to curred with the IG’s conclu- The precepts apply to many it binds our work to our change the world. That’s sion, noting that although different circumstances, and foreign policy priorities. If okay—the precepts highlight there are still improvements the sub-categories under EER drafting feels like an the importance of mentor- to be made, State had each skill group are numer- unwelcome distraction, take ing employees in multiple addressed deficiencies well. ous enough to capture a deep breath and remem- places and using horizontal Because we believe in the widely diverse accomplish- ber you are serving everyone management (e.g., with integrity of the promotion ments. by doing your best. peer-level colleagues). system and see it as inte- These characteristics are For some of you, this Finally, don’t forget “com- gral to the strength of the not random. AFSA negoti- year’s report might be more munity service and institu- Service, AFSA opposed the ates with management every about the journey than the tion-building”—key precepts Bureau of Human Resources’ year on its procedures to destination. One important in times of change. recent change to criteria for implement the promotion function of diplomacy is This is not to say that applying to cross the senior system—for example, on the to create a bank account recent management deci- threshold. Given the limited Bureau of Human Resources’ of trust with foreign inter- sions have not put some number of greater hardship instructions to promotion locutors. When crises Foreign Service members in positions available, only a panels. Every three years occur, diplomats draw on possible jeopardy, espe- subset of FS-1s will be able AFSA negotiates the sub- those accounts to partner cially those members who to meet the new require- stance of the precepts. We with others to address the have opened their windows ments for multiple greater review the procedures and challenges and find solu- to compete to cross the hardship tours or obtain a content of the precepts to tions. Part of any diplomat’s threshold. Drastically lower waiver from HR. ensure fairness and general job is building up those promotion numbers have AFSA supports stream- applicability, and to mini- accounts, and you may serious consequences, and lining the Professional mize circumstances that have done more of that we are doing all we can at Development Program—the could prompt grievances. recently. It’s valuable but AFSA to raise the alarm fewer boxes to check, the Taking advantage of the not high-profile work, often about the potentially grave better—but we favor keep- precepts’ flexibility and their leading to insights on how damage continued lower ing independent promotion comprehensive nature is to strengthen the U.S.-host promotion numbers will boards to select the next probably the wisest course country relationship. cause. generation of Senior Foreign of action when confronted Similarly, when your Our promotion system, Service leaders. with that blank EER form career takes an unwanted modeled on that of the The promotion system today. detour, or a busy policy military, is unusual in the belongs to members of the Composing a compelling account is suddenly quiet, federal government. The Foreign Service—its stew- evaluation does not just ful- it might be time to build up Foreign Service Act of 1980 ards. EER time is another fill an obligation to yourself other types of accounts— mandates that Foreign Ser- chance to refine that stew- or to your employees. It bulwarks of substantive vice promotions be decided ardship. Happy drafting! n

64 MAY 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

AFSA Honors 2017 Sinclaire Language Awards Recipients

Each year since 1982, the American Foreign Service Associa- variety of in-language activities, including participating in the tion has recognized the outstanding accomplishments of In-Language Media Practicum at FSI with mock interviews on members of the Foreign Service in the study and utilization various subjects in Icelandic, engaging in conversation at the of difficult languages through the Matilda W. Sinclaire Awards Estonian Independence Day reception in Estonian, conduct- program. Proficiency in foreign languages is a vital skill in the ing visa interviews without the assistance of an interpreter in work of the Foreign Service, not only for professional develop- Khmer, conducting outreach to Bangladeshi students inter- ment but also for personal security and success at post. ested in studying abroad in Bengali and putting in extra effort, AFSA established this program as a result of a generous both in and out of the classroom, to improve their language bequest from former Foreign Service Officer Matilda W. Sin- skills. claire, who sought “to promote and reward superior achieve- We are pleased to announce the 2017 Sinclaire Award ment by career officers of the Foreign Service…while studying recipients: one of the Category III or IV languages under the auspices of • Geoffrey Anisman—Russian the Foreign Service Institute.” • Oscar Avila—Icelandic Any career or career-conditional member of the Foreign • Kathryn Barnes—Farsi Service from the Department of State, U.S. Agency for Interna- • Edward Dunn—Estonian tional Development, Foreign Commercial Service, Foreign Agri- • Bryan James Furman—Bengali cultural Service, Broadcasting Board of Governors or Animal • Jason Inslee—Cambodian/Khmer and Plant Health Inspection Service is eligible for the award. • Leo Jilk—Armenian Recipients are selected by a committee comprising the • Janette LeHoux—Dari dean of the FSI School of Language studies (or his or her • Autumn Patterson—Bengali designee), an active member of AFSA and the AFSA Awards • Pamela Pontius—Vietnamese and Plaques Committee. Each winner receives $1,000 and a • Carly Ros—Farsi certificate of recognition. For more information about the Sinclaire Awards, please This year’s recipients demonstrated dedication to their contact AFSA Awards Coordinator Perri Green at green@afsa. chosen language and extraordinary skills by engaging in a wide org or (202) 719-9700, or visit www.afsa.org/sinclaire. n

Reward Meritorious Service: Nominate a Colleague for an MSI!

With the 2018 open season that should be recognized standing performance and/ within-class step increase. for MSIs quickly approach- with an award? or service in the areas of Those approved for an MSI ing, AFSA has a recommen- Nominate that person for policy leadership, collabora- who have reached the high- dation for all our members: an MSI! tion across functional lines est step of their grade (FS Look around! MSIs are no longer tied and human resources devel- 2-7, step 14 or FS-1, step 10 Do you have colleagues to the promotion process. opment.” It recognizes supe- and higher) by the effective whose work is exceptional, To ensure equity and equal rior performance exceeding date of an approved MSI will and who are delivering on access, the MSI award normal work expectations, be granted a cash payment in mission priorities, but who program is open to all eli- irrespective of potential to the amount of $2,500 in lieu might not otherwise get gible Foreign Service career serve at a higher grade. of a step increase. the recognition their work employees on a yearly basis A Meritorious Service In order to receive an MSI, deserves? Does one of your and is structured as a com- Increase is a permanent raise you must be nominated. colleagues demonstrate petitive, nominations-based to the next higher salary Anyone can nominate an policy leadership, collabora- awards process. step within a Foreign Ser- employee, but all nomina- tion across functional lines or Especially meritorious vice class. It is in addition to tions require approval by other markers of excellence service is defined as “out- any promotion and regular Continued on page 66

THE FOREIGN SERVICE JOURNAL | MAY 2018 65 AFSA NEWS

MSI • Continued from page 65 Back to School: Labor Management Matters

In recognizing In May 2017 AFSA and exclusive representation management and the union the Department of State rights for members of the hold certain rights and are excellence in your launched FSI course PA457 Foreign Service in six foreign legally bound to carry out colleagues, you are (Foreign Service Labor affairs agencies (State, specific obligations. The making the Foreign Management Relations). The USAID, FAS, FCS, BBG and Foreign Service Labor Man- Service stronger. Labor Management sec- APHIS). agement course (PA457) tion at AFSA developed this AFSA is unique in that it is discusses these rights and an official in the employee’s course to increase employee both the exclusive represen- obligations in more detail. chain of command, such as and management under- tative and the professional As an employee, you the bureau office director, standing of labor manage- association for the U.S. For- should know your rights, post principal officer or other ment relations within the eign Service. Over the years which include: senior official. Nominations foreign affairs agencies. AFSA has played a signifi- • The right to join or from overseas posts do Successful completion of cant role in advancing priori- assist the labor organization not need post joint awards the course enables members ties identified as important without fear of penalty, and committee approval. Nomi- of the Foreign Service to bet- to the Foreign Service and the right to refrain from join- nations must be submitted ter understand the relation- our membership. AFSA ing the union. to your bureau’s Executive ship between the union and engages in congressional • The right to act as a Office between April 1 and their respective agencies. advocacy, produces The representative of the labor June 16. In the course, you will learn Foreign Service Journal and organization and to present In recognizing excellence in about: administers a scholarship its views to authorities. your colleagues—particularly fund for the children of For- • The right to an attor- those who might feel disin- AFSA—Your Exclusive eign Service members. ney outside the exclusive clined to draw attention to Representative and Profes- AFSA is the sole recog- representative in grievance their accomplishments—you sional Organization nized labor union for the For- processes, if desired. are making the Foreign Ser- The history of Foreign eign Service; foreign affairs • The right to have a vice stronger, building the next Service labor management agencies may only negotiate union representative pres- generation of Foreign Service relations dates back ent during an investigatory leaders and highlighting the to 1924, when the interview conducted by the commitment to service that Consular Corps was agency if you reasonably unites us in this career. combined with the believe the interview may The MSI nomination form, Diplomatic Corps result in discipline or termi- DS-1903, can be found on to form the Foreign nation. MyData, on the intranet at Service of the United Do you want to learn https://mydata.state.sbu/ States. In the same more? The Foreign Service home. Nominations criteria year, the Consular Labor Management course can be found in the Proce- Association recon- (PA457) is available through dural Precepts for Foreign stituted itself as the FSI’s Leadership and Man- Service Meritorious Service American Foreign agement School and takes Increase Panels (on the HR/ Service Association— approximately one hour to

PE intranet site at https:// AFSA—the profes- ISTOCKPHOTO.COM/CREATARKA complete. We encourage all intranet.hr.state.sbu/offices/ sional organization for Foreign Service members pe/Pages/default.aspx). For members of the U.S. Foreign changes to conditions of to sign up and learn about more information, contact Service. employment with AFSA. labor-management relations [email protected]. In 1972 AFSA won the within the foreign affairs Please take the time to right to be the exclusive Rights and Obligations agencies. nominate your deserving representative of the Foreign As detailed in the Foreign —Jason Snyder, colleagues.n Service and currently holds Service Act, employees, AFSA Grievance Counselor

66 MAY 2018 | THE FOREIGN SERVICE JOURNAL NOTES FROM LABOR MANAGEMENT

Inventory and Inspection: How to Ensure a Better Packout

Q: After my packout from unless you avoided walking post, someone from the Gen- anywhere on the carpets or eral Services Office came, as sitting on any of the chairs, required, to do the inventory yours will show some nor- of government property, and mal wear and tear. to assess the state of the • If you have damaged furniture, carpets, etc. The something that needs to embassy then sent me an be replaced, deprecia- enormous bill, claiming that tion should be taken into I had damaged the chairs account. You should not and soiled the carpets. How be charged for the cost should I proceed? of a new item to replace a 10-year-old armchair. A: This problem arises • Look at any proposed more often than it should, re-upholstery costs very and is really something that carefully. If necessary, needs attention through- compare the proposed costs out your occupancy of the with other upholsterers. house or apartment. You Once again, you should not need to be aware of what be charged for fair wear and you have and its condition ISTOCKPHOTO.COM/DMITRYMO tear. from the day you move into The first thing you must do is ensure • Be realistic. Damage your post housing. that you have an accurate inventory or soiling by pets and/or The first thing you must children does not count do is ensure that you have and description of the condition of the as fair wear and tear and an accurate inventory and furniture and fittings when you move in. is your responsibility to description of the condition clean, repair or pay to have of the furniture and fittings rectified upon leaving. Large when you move in. This scratches and/or cigarette gives both you and the GSO Throughout your occu- the inspection together. or other burns on furniture a baseline from which to pancy, it probably goes • Compare your observa- are not fair wear and tear work. If there are any stains, without saying that you tions with those you made either, and are also your wear or damage on any should make sure that the on arrival; keep a copy of responsibility. furniture, carpets or fittings, furniture and fittings are your check-in inventory. If you need help in be precise about where the treated well. If any dam- • Make sure you get a negotiations with the GSO, damage is located and its age occurs, make a note of copy of the rough report, but speak with your AFSA nature. the extent of the damage, keep your own list as you go representative at post. They Take pictures and make as well as when and how it through the house. can contact the AFSA Labor sure that they are reliably occurred. This will ensure If you disagree with the Management Office on your dated. Share them with the that you are not taken by bill when you get it, ask to behalf. GSO office. Keep copies surprise during the check- go through it with the GSO —James Yorke, of all the documentation. out inspection. office. There are a number of Senior Labor This will enable you to factors that are worth bear- Management Adviser identify damage that was During the check-out ing in mind: not caused by you or your inspection: • Fair wear and tear is not family when you face the • Make sure that you and your responsibility. Things pack-out inspection. the GSO representative do wear out over time, and

THE FOREIGN SERVICE JOURNAL | MAY 2018 67 AFSA NEWS

Holst, Alan Rand Brems, Frederick G. Thank You for Your Service: Jacobson, Tracey Ann Brennan, Michael F. Karagiannis, Alexander Brooks, Carolyn O. FS Retirees, March 2017-March 2018 Kleinwaks, Elise H. Brown, Diana F. Kyna, X. Brownfield, William R. During the past 16 months, the Foreign Service has lost some Lee, Charles Bryan, Judith L. Llorens, Hugo Bucher, Lisa K. of its best diplomats, especially at senior levels, for a variety of Meaux, Michael P. Butler, Eldred P. reasons. What follows is a list of members of the Foreign Ser- Meininger, Laurie J. Cable, Floyd Steven vice who have retired since early 2017, as published (by month) Messenger, Jane S.W Campbell, Robert W. Miller, Janet B. Carrington, Ralph Wesley in State Magazine. We hear from AFSA members that because Miller, Janet Woodbury Childs, Gary L. State is no longer published in print, many do not see the lists Osius III, Theodore G. Colin, Thomas J. of retirements published there. Beginning with this issue, we Powers, Roberto Comiskey, Tamara G. Price, Richard C. Demaria, Joseph will be periodically publishing the names of those who have left Putz, Christine A. Dogonniuck, Joseph A. the Service. Ramadan, Virginia Sher Doman, Susan C. You will see the names of friends and colleagues, and you Reed, Howard Verne Donahue, David Tannrath Rezek, James M. Engle, Thomas Scott will recognize the names of many who are “Foreign Service Roxbury, Steven J. Eshelman, Stephanie famous”—known throughout the department for their years of Sadousky, Robert A. Ferguson, Joseph P. service and depth of knowledge. Schellack, Rodney Lynn Frazier, Robert A. Schwartz, Larry AFSA would like to thank all of the people whose names are Garrett, Stephen W. Schwartz, Stephen M. Gayle, Michael A. listed below, and their family members, for their service to our Shorter, Elenita M Gfoeller-Volkoff, Tatiana country and for the personal and professional sacrifices they Spaulding, Kenneth Gilles, Joanne made over the course of their careers. Townsend, Heather A. Gonzalez, Francisco Javier Vargas, Carol M. Green, Hollyn J. We wish them all luck in their future endeavors. They are Walsh, Susan M. Groth, Gregory S. missed. Whitaker, Nenita V. Grover, Charles H. Wilson, Andrew Chester Gwaltney, Sheila S. MARCH 2018 Nakpil,Victoria Ledda Witow, Jason Harold, Christine Anne Bellman, Sarah Kaye Pratt, Samuel Otis Harper, Steven F. Bolin, Michele L. Quanrud, Pamela G. DECEMBER 2017 Harrison, Jennifer A. Browning-Larsen, Eric Ridnour, Daniel C. Aldridge, George W Hawkins, Jeffrey J. Christopher Riley, Timothy J. Ashbery, Wayne B. Hays III, Joseph G. Brummet, Kenneth G. Ronish, Shane T. Bopp, Rita W Hegendorfer, Daryl R. Carpenter, Theodore R. Scheppman, Joseph G. Cellars, Jeffrey R. Heien, Debra P. Clarke, Owen A. Sibal, Jack G. Cunningham, Donald Kenneth Henifin, David Edward Glasscock, Byron N. Sindelar, Jocelyn M. Elliott, Susan M. Henke, Marcia K. Grier, David C. Taylor, Steven C. Garde, Dennis T. Hennessey, Kathleen M. Hodgson, Mark Anthony Vaughn, Debbie M. Gilbert, Terri Rebecca Hoza, Michael Stephen Labensky, Steven J. Wiggins, Frontis B. Gopinath, Keshav Jefferson, Sheila R. Miron, Edward J. Youmans, Bruce A Harold, Christine Anne Johnson, Eric A. Mozdzierz, William J. Jasik, Theodore E. Johnson, Kathy Ann Quick, Delia D. JANUARY 2018 Moore, Margaret J. Jones, Deborah A. Rose, Susanne Catherine Abercrombie-Winstanley, Gina Moore, Mark L. Jones, Laurence Kent Scheppman, Joseph G. Abrams, Stephen O. Reddick, Eunice S. Jones, Stuart E. Smith, Timothy J. Bame, David J. Stuart, Steven W Kirkconnell, Laura Jean Wennerstrom, Anne C. Baum Jr., Russell Alton Taylor, John Edward Kotto, Violet F. Henderson Wennerstrom, Martin Bennett, Virginia Lynn Kubiske, Lisa Jean Bryant, Craig P. NOVEMBER 2017 Landherr, Karen E. FEBRUARY 2018 Castro, Christian M. Abbott, Lucy K. Langston, Ellen C. Bodde, Peter W. Cooke, Robin C. Aguayo, Daniel E. Lanzet, William H. Campbell, David S. Cote, Janet A. Arvizu, Alexander A. Lattimer, Timothy Peter Chalkley, John Mark Dickmeyer, James C. Bachman, Brian Lepuschitz, Judith K. Cox, Suzanne L. Ebanks, Rohan L. Baroody, Judith R. Lesh, Vivian M. Crevier, Justin C. Ebert, Kathleen M. Batchelor, Jeffrey B. Long, Kemp L. Hall, Sarah C. Gallo, Thomas G. Bates, Pamela Marie Loo, Edward Jay, Jerry A. Godbee, Joseph Bauer, Kristen F. Lyle, Dale Kendall La Lime, Helen R. Goodman, Walter E. Boardman, Chase H. Marut, Christopher J. Meagher Lee, Gregory S. Grant, William Kevin Boohaker, Richard L. McCarthy, Nancy H. Long, Kim Michelle Hampson, John M. Bowen, Andrew McCormick, Georges F. Mateyov, Brian W. Haslach, Patricia Boyle, David William McKean, Margaret Miller, Gina L. Holmstrom, Todd C. Boyle, Leilani J. McKennan, Jacqueline K. Brand, Paul Eugene Meagher, Patrick Joseph

68 MAY 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

Meradith, John W. Zebley, David C. Cortese, Christopher T. Weech-House, Gilda T. Meurs, Douglas J. Zwach, David M. Gibbons, Peter G. Whatley, Reginald E. Midura, Christopher Kavanagh, Christopher White, Margaret Bryan Miller, Thomas S. OCTOBER 2017 Lipinski, John M. Milstead, Eric N. Abdulle, Mariam H. Macy, Michael MAY 2017 Moffit, Stephen L. Bhatnagar, Alka B. Murphy, Mary E. Denne-Bolton, Sara J. Moore, Patrick J. Burnham, Vicki Jean Nadeau, Carla T. Mcdermott, Susan A. Moore, Teresa Chappel, Mary Jean Ober, Richard C. Pagel, Dana L. Morley, Edward P. Coppedge Amato, Susan P. Rodriguez, Deborah Ann Smith, Gentry O. Morris, David T. Daley, Thomas William Rodriguez, Rodney Morris, Richard C. Eustace Jr., John Martin Roth, Michael R. APRIL 2017 Muelder, Timothy A. Fleitz, Louis G. Tompkins, Wesley M. Bassett, Leslie Ann Neil, Elizabeth Ann Geiger, Ricky Lee Baucus, Max S. Odlum, Geoffrey M. Hadley, Warren D. JUNE 2017 Bond, Michele Thoren Ogot, Onnie Berber Hallett, Kathy M. Abeyta, Susan K. Brooks, Joyce Ann Palmatier, Gary J. Hyland, Jason P. Aguirre, Alberto V. Calhoun, Keith H. Pannell, Sheila Marie Isaac, Paul C. Anderson, Eric Charles Countryman, Thomas M. Patterson, Greg S. Koen, Joseph C. Andrews, Theodore Howard Ettesvold, Kaara Nicole Penn, Brian A. Petrie, Ronald C. Bing, Jeffrey L. Haase, Robin L. Perrone, Daniel M. Rowe, Laughn P. Bretz, Michael B. Horton, Supin Pifer, Jerry Dean Salarano, Paul Browning Ii, Robert J. Ioane, Falaniko Ateliano Pifer, Karolyn Savinon, Ana M. Bunnell, Theron Q. Kelly, Thomas Patrick Piness, Peter Sims, Gail S. Chapman, Gregory D. Kennedy, Patrick Francis Pollard Jr., Ralph Thomas Sirotic, Aldo J. Coleman, Claire L. Loring, Pamela Prespare, William R. Walsh, Judith M. Combs-Ashruf, Ingrid G. Loveland, James David Randolph, Charles Wessel, David K. Contractor, Shaila Lowder, Todd S. Rettberg, Dirk Cortese, Christopher T. Lute, Douglas E. Reynolds, Robert H. SEPTEMBER 2017 Devilla, Dean L. Lynn, George W. Rice, Kurt R. Alcantara, Bartolo Erickson, Andrew S. E. Mangum, Gloria R. Richards, Stuart A. Beecroft, Robert Stephen Evans, Rodney Allen Martin, William John Robinson, Sandralee M. Byron, Kevin M. Figueroa, Carlos I. Patterson, Anne Woods Rodriguez, Deborah Ann Catala, Carmen Pickett Flanagan, Craig Russell, Susan A. Rosenman, Richard G. Chomiak-Salvi, Tania Gibbons, Peter G. Wessel, Peter Rowan, Christopher Classick, Carla D. Gourlay, Elizabeth Perry Westphal, Joseph William Sardelli, Adrienne K. Classick, Michael A. Grice, Lisa D. Winer, Jonathan M. Schulz, Kirsten A. Cudal, Gabriel F. Gurski, Alma R. Zumwalt, James P. Schwartz, David J. Dahm, Amy E. Haley, Timothy G. Sheppard, Gary Daniels, Jasper Ray Harville, John W. MARCH 2017 Siebentritt, Carl R. Depietri, Howard A. Hicks, Howard A. Abbott, Jan D. Silver, Richard R. De Witt, Robert C. Hicks, Jeffrey B. Ahson, Mazhar Smith, Adam L. Dixon, Michael Scott Hunter, James Joseph Callaghan, Anne Taylor Smith, Robin Angela Fasciglione, Richard J. Johnson, Debra I. Cazier, Dale P. Smoak, Rebecca B. Flattum-Riemers, Jan Marie Kenney, Kristie Anne Dunkley, Martha K. Soule, Robert E Fotheringham, Marialuisa N. Kontek, Thaddeus L. Dunkley, Michael L. Staeben, Derwood Keith Johnson, Sylvia D. Kronenburg, Stephanie A. Ijames Jr., Don D. Stafford, Nancy M. Landry, Leslie E. Loi, James L. Jurkiewicz, Joanne M. Stofko, James August Leighton Jr., Henry A. Mann, Andrew Cooper Kazmin, Catherine M. Taylor, John C. Lischke, Jeffrey D. Mccarthy, Patricia Sheehan Korpi, Ryan F. Taylor, Teddy Bernard Mastel, Paul N. Mitchell, Mark Paul Landymore, Frank W Thomas-Greenfield, Linda McEldowney, Nancy E. Moone, Joseph E. Meagher, Zita E. Titus, Daphne M. McFadden, John M. Mulrean, Peter F. Moran, John G. Tracey, Debra C. Moreno, Luis G. Mutschler, Susan K. Myelle, Mark E. Voorhies, Michael R. Nealon Jr., James D. Nuland, Victoria Jane Picardi, Judith E. Waldo, Jeffrey Scott Nicholas, Richard A. O’Friel, Paul Christopher Pizarro, Ricardo M. Warlick, Mary Burce Pedraza, Jose Ordonez, Michael A. Putnam, Elizabeth Candace Weinstein, William Rank, David H. Pare, Etienne J. Quinn, Patricia C. Weller, Wesley A. Stapleton, Anthony K. Pierrot, Garry Reade, Evan G. Wenig, Mark L. Touchstone, Michael P. Pines, Nathaniel J. Rodriguez, Rafael A. West, Terrence Wing, Vincent K. Poulton, Lynette J. Sangbong, Monica Mdaughli Westfall, Gary W. Wohlers, Paul Dashner Robinson Jr, David M. Swan, James C. White, Terry J. Yeutter, David M. San Miguel, Dennis Ureta, Horacio Antonio Wise, N. Ridgway Zaman, Wendy A. Schaefer, Josephine M. Warlick Jr., James Bowen Wolfe, David C. Schellack, Rodney Lynn Weston, Richard Charles Woolridge, Rudolph T. JULY/AUGUST 2017 Starr, Karen Youngquist, Debra L. Yeager Jr., Loren R. Bixby, Jay H. Thedy, Tod M. Zappia, Harold Yip, Sau Ching Bulkin, Carleton Myles Thomason, Olin

THE FOREIGN SERVICE JOURNAL | MAY 2018 69 AFSA NEWS

AFSA Governing Board Meeting, March 28, 2018

Awards and Plaques Committee: It was moved that the It was moved and amended that the Governing Board Governing Board approve the committee’s recommenda- approve the following disposition of unexpended bud- tions for winners of the Matilda W. Sinclaire Award for get items from 2017: Use $134,000 for FY18 operating their achievements in the study and utilization of difficult costs; move $215,000 into the AFSA operating reserves; languages in 2017. (For a complete list of names, see p. 65.) and move $115,000 into the FAD operating reserve. The The motion was adopted. motion was adopted.

Management Committee: It was moved that the Govern- Membership Committee: It was moved that the Gov- ing Board authorize the retiree vice president to support erning Board approve the criterion that applicants for the re-appointment of six current FSGB members who are the Associate Membership category must show demon- willing to continue to serve. The motion was adopted. strated, active links to the Foreign Service community. It was moved that the Governing Board authorize the The motion was adopted. retiree vice president to support the appointment of what- ever new non-FS arbitrator that Management nominates if New Business: It was moved that the Governing Board his/her resume reflects qualifications on par with existing approve of the following individuals as nominees for the non-FS arbitrator members of the FSGB and after the AFSA Foreign Service Impasse Disputes Panel: Christopher retiree vice president has briefed him/her on the main Krafchack, Jay Raman, Ryan Stoner, Rachael Mueller and difference between the FS and Civil Service personnel and Brent T. Christensen. The motion was adopted. employee-management systems. The motion was adopted. It was moved that the Governing Board put forward for It was moved that the Governing Board authorize the discussion the decision to terminate two AFSA staff mem- retiree vice president to support the appointment of the bers and the manner in which it was done. The motion following retired FS members: Keith Curtis (FCS retiree), was adopted and the Governing Board went into executive David Eckerson (USAID retiree) and Madelyn Spirnak (State session. n retiree). The motion was adopted.

AFSA Welcomes New USAID VP

On Feb. 21, the AFSA Govern- development; As a single He looks forward to utilizing ing Board approved USAID and administra- parent, Jeff has his background of diverse Foreign Service Officer tion. He brings learned to apply assignments, responsibilities Jeffrey Levine to serve as a collaborative work-life balance and opportunities to repre- vice president for the USAID approach and to his career. He sent and advocate on behalf constituency until July 2019, deep Foreign is co-chair of the of all USAID FSOs and their replacing outgoing VP Ann Service experi- USAID Employ- families. Posner, who retired in March. ence to AFSA ees Resource The USAID AFSA office is Jeff is an accomplished after tours in Group (RPCVs@ in the Ronald Reagan Build- development professional Africa, South USAID) and, ing, Room 2.10-C. Jeff can be with more than 25 years America, Asia continuing his reached at [email protected] of experience in designing, and the Middle previous ways as or (202) 712-5267. n implementing and evaluat- East, as well as in Washing- a backstop coordinator, fre- ing programs; partnership ton, D.C. quently mentors new officers.

70 MAY 2018 | THE FOREIGN SERVICE JOURNAL AFSA NEWS

AAFAA LAUNCHES INTERNSHIP SCHOLARSHIP FUND The Asian American Foreign Affairs Association, in partnership with AFSA, recently launched the AAFAA Internship Scholarship Fund to increase diversity in the Foreign and Civil Service. This fund aims to pro- vide financial assistance to interns who are members of underrepresented groups within the Asian-Ameri- NEWS BRIEF can and Pacific Islander (AAPI) diaspora. In addition to this new collaboration with AAFAA, AFSA has for years partnered with the Thursday Lun- cheon Group (TLG) to support a deserving minority college student for a summer internship at the State Department. AFSA has also partnered with the His- panic Employees Council of Foreign Affairs Agencies (HECFAA) since 2014 to sponsor a Hispanic-American college student for a summer internship at the depart- ment. “Internships with the department are one of our most effective recruitment tools, offering students the opportunity to gain experience in Washington or at posts abroad,” says AAFAA’s Finance Chair Joseph Lin, but “almost all of these internships are unpaid, leaving students to bear the associated financial burdens. The reality is that many qualified AAPI students cannot afford to take unpaid internships.” Though Asian-Americans generally have high median household incomes, says Lin, the figure is not representative of the AAPI population as a whole. Aggregate data distorts information on many Asian subgroups and masks large differences in economic situations, such as with some Southeast Asians and Pacific Islanders, who top the nation’s charts in poverty, lack of education and unemployment. AAFAA intends to address these needs with this scholarship, and help support the department in ensuring our work- force is qualified, inclusive and diverse. According to Lin, at the senior foreign service level, Asian-Americans represent less than 3.75 percent of the department’s workforce. AAFAA hopes to change this by launching the scholarship program, adding qualified, diverse candidates to the talent pool. To learn more about how you can contribute to the fund, please contact AAFAA at [email protected]. To learn more about the TLG and HECFAA scholarships, visit www.afsa.org/minority-internships. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 71 IN MEMORY

n Terrell Arnold, 92, a retired Foreign in Brazil (twice), Nicaragua, Indonesia returned to private life, Mrs. Goodby Service officer, died on Jan. 24 at Ascen- (twice), Thailand and Argentina. Their assisted her husband in researching, sion St. Michael’s Hospital in Stevens four children were born in Rio de Janeiro, writing and editing several books about Point, Wis. Managua and East Java, Indonesia. international security issues. Mr. Arnold was born in Bluefield, Her family recalls that she adapted Her family reports that Mrs. Goodby W. Va., the son of the late Charles and quickly to the political and economic con- was a strong advocate for social justice, Mary (nee Craven) Arnold. He entered the ditions at post, hiding her children under beginning with her active early life at All U.S. Navy in 1943, becoming chief petty the bed when communists in East Java Souls Unitarian Church, one of the few officer and also quartermaster before he were breaking windows in the neighbor- public places in Washington at that time was honorably discharged in 1946. hood but getting annoyed when a touring open to African-Americans, not only for After military service, Mr. Arnold American drummer stole the toilet seat worship but also for sports and social obtained a bachelor’s degree from Stan- from the family’s bathroom in Surabaya. activities. ford University, a master’s degree in politi- Mrs. Coffey volunteered for many Mrs. Goodby was a lifetime member of cal science and economics from San Jose years with SHARE of McLean, Va., after the Southern Poverty Law Center. For sev- State and an associate’s degree from SUNY her husband retired. She and her husband eral years she was an officer of the Board of Plattsburgh University. moved to Denton, Texas, three years ago PLAN of Maryland-D.C. Mr. Arnold married the former Yvonne to allow her to participate in a drug trial for For the past several years, the Goodbys Wright on Nov. 25, 1951, in Las Vegas, Nev. Alzheimer’s in nearby Dallas. have spent part of the year in the Bay Area He joined the Foreign Service in 1957 Mrs. Coffey is survived by her husband of Northern California while working with and served in Washington, D.C., Cairo, Fred; son Jeff (and wife Susanne) of Texas; former Secretary of State George P. Shultz Calcutta (now Kolkata), Colombo, Manila daughter Teri (and her husband, Mike, and at Stanford University’s Hoover Institution. and São Paulo before retiring as a Minister sons Tate, Logan and Cooper) of Virginia; Mrs. Goodby is survived by her hus- Counselor in 1984. After retirement, Mr. son Pat (and his son, Taz) of California; band, Amb. James Goodby of Washing- Arnold worked as a consultant to the State and son Fred III of Florida. ton, D.C.; two children, James Laurence Department until 2009. Goodby of San Jose, Calif., and Sarah Mr. Arnold published six books on con- n Priscilla Staples Goodby, 86, Walcott Goodby, of Washington, D.C.; and temporary foreign relations and was work- the spouse of Ambassador (ret.) James a sister, Dorothy Staples Egbert, of Stillwa- ing on a book about the Israel/Palestine Goodby, died of lung cancer on Feb. 2 at ter, Okla. conflict. He previously served as president Sibley Memorial Hospital in Washington, Memorial contributions in her name of the Rotary Club of Stevens Point and D.C. may be made to the Southern Poverty Law president of Learning Is For Ever. In his Mrs. Goodby was born in Washing- Center. spare time Mr. Arnold enjoyed fishing and ton, D.C., on Jan. 7, 1932, the daughter of birdwatching. Laurence and Ruth Staples. Her father was n Joseph Charles Guardiano, 86, a Survivors include his wife, Yvonne the executive director of All Souls Unitar- retired Foreign Service officer with USAID, Arnold of Stevens Point, niece Pamela ian Church for 35 years. Mrs. Goodby was died on Dec. 22, 2017, in Fort Myers, Fla. Arnold of Sandston, Va., and other nieces a 1949 graduate of Wilson High School and As a youth growing up in West New and nephews. a 1953 graduate of Wellesley. York, N.J., Mr. Guardiano wanted to see the She joined the staff of the Federal world—and so he did. The Air Force took n Jane Coffey, 87, the spouse of retired Reserve Board in Washington in 1953 and him to England and then to Savannah, Ga., USIA Foreign Service Officer Fred Coffey, served for nearly a decade with its Inter- where in his spare time he earned an asso- died on Feb. 1 at home in Denton, Texas, of national Division, resigning to accompany ciate’s degree at Armstrong College. Alzheimer’s disease. her husband on his overseas assignments. The GI Bill paid for his education at Mrs. Coffey was born and raised in Mrs. Goodby and her husband served Columbia College in New York City and his Everett, Wash., by immigrant parents. in Brussels, Geneva, Stockholm and master’s degree study at Columbia Univer- Mrs. Coffey’s husband joined the For- Helsinki, where Mr. Goodby was the sity’s School of International Affairs, where eign Service in 1956; together they served U.S. ambassador to Finland. When they he met and married classmate Janet.

72 MAY 2018 | THE FOREIGN SERVICE JOURNAL He was honorably discharged from the n Walter Vance Hall Jr., 87, a retired Mrs. Hartman was a graduate of Michi- Air Force in 1954. He joined USAID in 1960 Foreign Service officer, died on Jan. 6 in gan State University and the University of and was posted in Chad, Niger, Thailand, Alexandria, Va. Michigan. Korea, the Philippines, Zaire (Congo) and Mr. Hall was born in 1930 in Emmerton, She worked for the U.S. Information Senegal. He also spent two years in Rome Va., the son of Walter Vance Hall Sr. and Service from 1984 to 1985, setting up an “on loan” to the United Nations Food and Emma Lemoine Griffith. He graduated English-language library in Sanaa. In 2003 Agriculture Organization. from Hampden-Sydney College, served she joined the Foreign Service as an infor- Mr. Guardiano retired to Cape Coral in the U.S. Navy and then earned a degree mation resource officer, serving in Nairobi, in 1981 after 20 years of service, but when from Georgetown University’s School of Pretoria, Rome and Washington, D.C. USAID asked him to return on contract, he Foreign Service. Mrs. Hartman was instrumental in and his wife moved to Mauritania for two Mr. Hall served in Seoul, Naples and launching “maker spaces” in Europe, years. Suva, as well as in the U.S. Mission to the Africa and Asia, where the use of U.S. infor- Back in the United States, Mr. United Nations in Vienna. Following his mation technology is demonstrated and Guardiano earned his Ph.D. in geogra- retirement in 1982, he continued to work shared with the goal of inspiring entrepre- phy—a field he chose because it covers in the State Department on freedom of neurship. She retired in 2015 as the deputy nearly all aspects of human organization— information cases until 2000. director of the Office of American Spaces. at Clark University at age 60. Mr. Hall was a lifelong member of Mrs. Hartman published five textbooks, He retired again to Cape Coral and North Farnham Parish Church in Farn- one of which is still in use. later, Fort Myers. Bitten by the political ham, Va., and during his long residence in She is survived by her husband, Jack; bug, he became an avid volunteer for his Alexandria he was an active parishioner at their daughters, Tracy and Hilary; and newly chosen political party in the 1990s, St. Paul’s Episcopal Church. granddaughters, Charlotte, Lily and Willa. eventually serving as county chair for two He was a member of the board of direc- In lieu of flowers, donations can be years. tors of the Historic Alexandria Foundation made to the Pancreatic Cancer Action He also took on short-term USAID proj- and the American Library Company. He Network. ects to Egypt, Slovakia and other locations, served two terms on the Alexandria Arche- and taught a series of courses to USAID ology Commission and was a longtime n Charles Bowman “Charlie” Jaco- officers in Latin America. member of the Metropolitan Club. bini, 72, a retired Foreign Service officer, Meanwhile, Edison College and Florida Family members recall that Mr. Hall died at home in Lewes, Del., on Jan. 8. Gulf Coast University met his own craving enjoyed his nearly 20 years of tutoring in Mr. Jacobini was born in Borger, Texas, for learning. As the oldest person in class— Alexandria public schools. He also took and raised in various places in the United including his professors—he worked his great pleasure in working in his garden, States and in Manila. He earned his bach- way through several layers of calculus, and reading, entertaining friends and cooking, elor’s degree from Trinity College in 1967 enjoyed literature and Florida geography and he was an enthusiastic traveler. and his master’s degree from the Fletcher courses well into his 70s. Mr. Hall is survived by his wife, Julia Elis- School of Law and Diplomacy of Tufts Those who knew him will remember abeth Ramberg Hall, of Alexandria, whom University in 1968. Mr. Guardiano for his endless curiosity, his he married in Rome in 1963; two sons, John Mr. Jacobini worked for Chase Manhat- energy and, most of all, his wit. Ramberg Hall (and wife, Denise Ann Hall) tan Bank in New York before entering the Mr. Guardiano is survived by his wife, of Hackettstown, N. J., and Walter Vance Foreign Service in 1969. Jan, of Fort Myers, Fla.; their sons Greg Hall III of Chesapeake, Va.; and grandsons He was detailed to the Civil Operations (of Colorado), John (of Washington, D.C.) Lleyton Vance Hall and Anders John Hall. and Revolutionary Development Support and Jeb (and Jeb’s wife, Gail) of Detroit, Memorial contributions may be made office in Bien Hoa, and was then posted to Mich.; his sister, Sylvia (and brother-in- to The Saint Paul’s Foundation. Recife as an economic-commercial officer law Frank); and 10 nieces and nephews. in 1972. While in Brazil, he was seconded His brother, John, and sister-in-law, Pat, n Karen Hartman, 63, a retired to Vietnam for six months prior to the fall predeceased him. Foreign Service officer, died on Jan. 14 in of Saigon. Douglas, Mich., of pancreatic cancer. Mr. Jacobini returned to Brazil in 1974

THE FOREIGN SERVICE JOURNAL | MAY 2018 73 to serve as consul general in Belem. He Lithuania, as she accompanied her spouse. leaves grandchildren Henry Stern, Sophie subsequently served in Tokyo, Cairo and Family members and friends recall Ms. Greenbaum, Ella Jacobs, Mark Cheever, Ankara, as well as Washington, D.C. His Marke’s selfless devotion to her family and Emily Cheever and Eleanor Mattos; and a last overseas assignment was as economic friends, her love of veterinary medicine, great-grandson, Moses Greenbaum. counselor in Singapore from 1994 to 1995. and her compassion and caring for others In lieu of flowers, donations can be After retiring he went to work for Edi- even as she suffered from cancer. She made to the Arlington Parks and Recre- son Mission Energy in Jakarta. formed deep, lasting friendships every- ation’s Bon Air Memorial Rose Garden or a Mr. Jacobini returned to the United where she studied, worked and lived. charity of your choice. States in 1998 and worked in the private Ms. Marke is survived by her husband, and public sectors on trade policy and Robert Silberstein, and their sons Jona- n George “Tom” Novinger, 61, a intelligence analysis. than, 20, and Michael, 18, of Arlington, Va. retired Foreign Service officer, and his wife, He spent nine months in Belgrade, She is also survived by her mother, Shirley; Gladys Novinger, 62, died on Nov. 25, 2017, advising the government of Serbia on its sister, Samantha; and brother, Antony; as in a tragic accident at Rainbow Falls in application to join the European Union, well as her two dogs, Spotz and Yena. Hilo, Hawaii. followed by three months at the embassy In lieu of flowers, the family suggests Mr. Novinger grew up in La Crescenta, in Tirana as an interim political/economic donations to the LUNGevity Foundation in Calif. A fifth-generation Californian, he counselor. Ms. Marke’s name, at www.lungevity.org/ earned B.A. and M.A. degrees in music For several years, he worked at State lornamarke. at Occidental College in Los Angeles. He on scientific cooperation with Ukraine became a math teacher and swim coach and other former Soviet republics. He n Doris Eleanor Mattos, 95, spouse at Hoover High School in Glendale, Calif., retired again in 2012, moving to Lewes, of the late U.S. Information Service FSO before moving to Japan with his former Del., in 2016. Edward H. Mattos, died on Jan. 2 in Arling- wife, Michiko. His family recalls that Mr. Jacobini was ton, Va. Mrs. Mattos and her husband Mr. Novinger joined the State Depart- a renowned cook who loved entertaining, served together in the Philippines, Spain, ment Foreign Service in 1989, and served travel and adventure. Malaysia, Canada and Washington, D.C. for 24 years. He and his family were posted Mr. Jacobini is survived by Dianne After returning to Washington, D.C., to Hong Kong, Japan, Paraguay, Brunei, Rotte Jacobini, his wife of 37 years; and Mrs. Mattos created an application review South Korea and Syria, where he served as by his daughters, Anne Campbell and program with the D.C.-based Youth chargé d’affaires. Caroline Nash, and their husbands. He is for Understanding, a student exchange In 2008 he earned a master’s degree also survived by his mother, Billie Jacobini. program. She developed the department in national resource strategy from the A son, Thomas, died in infancy. from a single voluntary position to a paid National Defense University in Washing- position with a large staff of volunteers. ton, D.C. n Lorna Marke, 53, spouse of active- Mrs. Mattos traveled extensively with Mr. Novinger’s passion in life was duty Foreign Service Officer Robert Silber- her husband and, following his death, choral music, and he started and directed stein, died on Feb. 23, in Washington, D.C., continued to be active in traveling, theater, international choirs in each city where he three years and three months after being cultural events, literature and cuisine. lived. Highlights of his conducting career diagnosed with non-smokers’ lung cancer. Family members remember her as a include performances for Prince Charles Ms. Marke was born in Dover, England. loyal Democrat who was thrilled to be able and Princess Diana of Wales in Tokyo in She was raised in Houston, Texas; Lagos, to vote for an African-American and then 1986 and for First Lady Hillary Clinton in Nigeria; and The Hague, Holland. She a woman for president in her lifetime. She Paraguay in 1995. received a bachelor’s degree from Johns loved dogs, a good joke, a glass of Scotch After retirement, he and his new wife, Hopkins University and a doctorate of vet- with the evening news and a good meal. Gladys, and stepson, Joseph, moved to erinary medicine from Cornell University. Mrs. Mattos is survived by her three Spring Valley, Calif., where he developed Ms. Marke practiced veterinary medi- daughters and their families, Laure Stern Vineyard Hacienda, a wedding venue and cine in Washington, D.C., and overseas in (of California), Kate Mattos (of Virginia) bed and breakfast where they also made Costa Rica, India, Croatia, Vietnam and and Elizabeth Cheever (of Maine). She also their own wine.

74 MAY 2018 | THE FOREIGN SERVICE JOURNAL He became a frequent speaker on Sally, and his children, Elizabeth and 2017, in New Braunfels, Texas. the Middle East and Far East at colleges, Thomas. Mr. Stellmacher joined the Foreign universities and World Affairs Councils. In lieu of flowers, the family requests Service in 1956, serving in Cali, Guatemala President of Balboa Park New Interna- that donations be made to the Sidney City, Juarez, Piedras Negras, Munich, tional Cottages, Inc., he also chaired the Kimmel Comprehensive Cancer Center at Manila and Hermosillo, before his retire- Balboa Park New International Cottages Johns Hopkins, where he received excel- ment in 1975. Construction Group and was on the execu- lent care during his illness. His family recalls that he loved playing tive board of the House of Public Relations his Hammond organ and gave concerts at at Balboa Park. n Ruth Sorensen Singer, 86, the every post, including the Philippines. Mr. Novinger also served on the gov- spouse of retired USAID Foreign Service Mr. Stellmacher was preceded in death erning board of Steele Canyon High School Officer Derek Singer, died on Jan. 10 in by his wife, Mary, and son, Philip. He is and was a member of the Jamul-Dulzura Falls Church, Va. survived by daughters Linda Stellmacher- Community Planning Group. He and his Mrs. Singer, the only daughter of the Lester and Barbara Stellmacher-Squires. wife were co-chairs of the advisory board late C.A. and Annis Chaikin Sorensen, of the San Diego Diplomacy Council, was born and raised in Nebraska. She n Nilva J. Tull, 85, the spouse of retired served on the San Diego International graduated from University of Nebraska in Foreign Service Officer James L. Tull, died Affairs Board and led the nonprofit Reme- 1952 and from Johns Hopkins School of on Jan. 20 in Virginia Beach, Va. dios Naturales in Peru that researches Advanced International Studies in 1955. Mrs. Tull was the daughter of an Iowa medicinal uses of jungle plants. He was a She married Derek S. Singer, and the farmer and her husband was the son of founding board member of Make Music pair began a career in public service, a hardware store owner in Eldora, Iowa. Los Angeles. including Peace Corps assignments in After graduation from Eldora High in 1949, Mr. and Mrs. Novinger are survived by Bolivia and Tunisia, public television both attended Iowa State Teachers College. his daughter, Saya Joy Novinger; her son administration in Chicago and USAID Mrs. Tull graduated in 1951 and began Joseph Harmes III; his parents, George and postings in the Congo, Kenya, Ecuador and teaching elementary school in Grady, Anne Marie Novinger; and his sisters, Mary Cameroon. Iowa, while Mr. Tull enlisted in the U.S. Novinger Noble and Barbara Novinger. Family members recall Mrs. Singer’s Navy. The couple married in April 1953 at Donations honoring their memory may extensive community involvement, includ- the Naval Air Station in Alameda, Calif., be sent to HouseofPeru.com. ing participation in the civil rights move- and later moved to Boulder, Colo., where ment, work with the Kennedy administra- Mr. Tull earned degrees from the Univer- n Richard Ripley Peterson, 78, a tion, involvement in the Unitarian Church, sity of Colorado. retired Foreign Service officer, died at speech writing and teaching English. Mr. Tull entered the Foreign Service home in Bristow, Va., on Jan. 25 after a A lifelong member of the Democratic in 1958. Over the next 32 years, Mrs. Tull two-year battle with pancreatic cancer. Party, she worked with former Senator accompanied him to posts in Cali, Lon- Mr. Peterson was born in Chicago, Fritz Hollings (D-S.C.) to publish The Case don, Montevideo, Santo Domingo, Nicosia, Ill., and attended Northern Illinois Uni- Against Hunger (Cowels, 1970), and was a Bogotá and San José. Mr. Tull retired from versity. He joined the State Department Democratic delegate from Illinois for the the State Department in 1990. Foreign Service in 1963 and served for 1976 presidential election. Mrs. Tull was preceded in death by her 35 years, with postings to Bermuda, Predeceased by her brothers Robert, husband, who died on March 12, 2011, in the United Kingdom, Mexico and the Tom, Ted and Phil, Mrs. Singer is survived Alexandria, Va. Philippines. by her husband, Derek, of Falls Church, Survivors include the couple’s children, In retirement, he honed his cooking Va.; her children, Vicky, Alex, Ted and Stephen Tull of Crofton, Md.; Elizabeth skills and explored his love of technol- Jason; and her grandchildren. Mrs. Singer (Tull) Arbon of Centennial, Colo.; Chris- ogy, while never giving up the travel donated her body to science. topher Tull of Virginia Beach, Va.; and two bug. His family remembers him for his grandsons, Trevor Tull and Graham Arbon. kindness and sense of humor. n Edward O. Stellmacher, 93, a retired Mrs. Tull will be buried in Eldora, Iowa, Mr. Peterson is survived by his wife, Foreign Service officer, died on Jan. 7, alongside her husband. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 75 BOOKS

In Defense of an Having established the cannot be dismissed as mere Embattled U.N. groundwork, Weiss pro- rhetoric. ceeds to a more intellectu- After this strong defense of Would the World Be Better ally challenging, difficult- the U.N. and its ideals, Weiss Without the UN? to-quantify “what if,” or presents an equally powerful Thomas G. Weiss, Polity, 2018, $24.95, “counterfactual” approach, indictment of its many failings. paperback/Kindle, 240 pages. speculating on how postwar He maintains, as was so obvi- history might have played out ous to us practitioners on the UNtold: The Real Story of the United in the absence of the United ground, that the organization Nations in Peace and War Nations. As he acknowledges, could do so much better, be so Ian Williams, with illustrations by many historians regard such methodol- much more creative and robust, espe- Krishna, Just World Books, 2017, $21.95/ ogy with skepticism; but Weiss never- cially given that the “Second U.N.” has paperback, $19.99/Kindle, 176 pages. theless makes a convincing case for the “more autonomy and room for maneu- U.N.’s overall positive contribution to ver than is generally believed.” Reviewed By W. Gary Gray the world order. Weiss scathingly zeroes in on what He argues that the U.N. and related he calls the United Nation’s four major In the Trump era, with the United entities have played crucial, irreplace- ailments: “unreconstructed, sacrosanct Nations, international organizations in able roles in providing a neutral venue for sovereignty,” “lackluster leadership,” general and, arguably, the entire post- antagonistic governments to resolve crises “North-South theatrics” and “atomiza- war world order under siege at the very in arms control (specifically in monitoring tion.” time cross-border global challenges are weapons of mass destruction and chemi- Based on my own experience, I accelerating, Would the World be Better cal weapons disposal) and in dealing with could not agree more with the author’s without the UN? could not be more increasingly global epidemics. contention that excessive deference timely. This is the kind of indispensible primer I wish I’d been able to read After this strong defense of the UN and its ideals, Weiss presents before embarking on my own United an equally powerful indictment of its many failings. Nations work. Author Thomas Weiss effectively captures the essence of the Weiss also highlights the consider- to sovereignty can be the most costly overriding issues I saw playing out on able achievements of lesser known of these failings, potentially “lethal for the ground in various U.N. operations. branches of the U.N. family, such as the the planet.” I think he could have gone Weiss first lays out the basic frame- International Civil Aviation Organiza- further, however, to examine how these work for understanding the United tion and the Universal Postal Union, ailments reinforce each other. Nations: there is the “First U.N.” of the whose critical functions are now taken From my observation, “lackluster member-state governments, which often for granted. leadership” is often manifested in complicates the work of the “Second He sees the United Nations as most resorting to the “sovereignty” pretext U.N.” (the U.N. Secretariat and related influential in enshrining and spread- as a means of avoiding uncomfortable organizations), while the “Third U.N.” of ing ideas now accepted as international confrontations with host government NGOs and other nonstate actors exerts norms, including human rights and leaders on difficult issues, while “atomi- increasing influence. In a comprehen- humanitarian values, arguing that such zation” provides convenient excuses for sive but concise and readable fashion, ideals would not have taken hold as fast passing the buck within the U.N. he traces the activity and origins of the if left merely to the marketplace. In his Having spent my last assignment often bewilderingly convoluted and view, despite the many flaws of its human with the U.N. in the most hopeless overlapping U.N. entities involved in rights structures and their procedures, endeavor I’ve ever encountered— “international peace and security,” the U.N.’s “naming and shaming” of futilely attempting to coordinate “human rights and humanitarian human rights violators via such mecha- peacekeeping, development and action” and “sustainable development.” nisms as the Universal Periodic Review humanitarian efforts in South Sudan—I

76 MAY 2018 | THE FOREIGN SERVICE JOURNAL can only wholeheartedly concur with the organization can consolidate and for a long-postponed and desperately Weiss’s blistering critique of the rationalize operations. He also sees needed change in how the world does counterproductive overlap and the new emphasis on R2P business.” competition among its various (responsibility to protect) as moving parts, particularly in reflecting increased willing- W. Gary Gray served in the Foreign Service the humanitarian aid/devel- ness to override sovereignty from 1985 to 2002, with assignments in opment areas. when necessary to protect Bucharest, Pretoria, Moscow, Maputo, Weiss urges donors to endangered civilians. Jakarta, Dili, Kuala Lumpur and Washing- insist not merely on “coor- In UNtold, a much slim- ton, D.C. From 2002 to 2013 he held senior dination,” which he aptly mer, less substantive volume, management positions in United Nations describes as a “vacuous author Ian Williams is updating peacekeeping missions. recipe to leave bureaucratic his UN for Beginners published things as they are,” but a thoroughgoing in 1995. He attempts to cover The Democracy Debate consolidation and centralization of “a much of the same ground as Weiss, system that has more in common with with a similar theme (the U.N. is highly Does Democracy Matter? The United feudalism than with a modern organiza- flawed, but we’d be worse off without States and Global Democracy Support tion.” it) but in a lighter, more entertaining, Adrian Basora, Agnieszka Marczyk While Weiss demonstrates impres- rambling way. UNtold may be suitable and Maia Otarashvili (eds), sive mastery of the human rights, for those seeking a quick, intellectually Rowman & Littlefield Publishers, humanitarian aid and development undemanding overview, but is certainly 2017, $35, paperback, 222 pages. fronts, I would like to have seen this no substitute for the much more rigor- book delve deeper and more critically ous, well-researched analysis of Weiss’s Reviewed By Brittany Foutz into peacekeeping and peacebuilding book. issues, perhaps providing more compar- UNtold’s overly simplistic and some- At a time when authoritarianism ative analysis and lessons learned from times over-the-top anti-Americanism seems to be trending in many places the various peacekeeping operations. may be off-putting to readers. That said, around the world, there is a new focus For instance, why was Timor a rela- the book does provide some interest- on democracy—its characteristics, its tive success while other missions inter- ing anecdotes, historical curiosities prerequisites, its vulnerabilities and the minably founder? Also useful would and trivia tidbits for us U.N. fans, such best ways to promote its development have been more focus on the people- as why American U.N. officials have to and safeguard its foundations. on-the-ground factor, more recognition learn to write in British English (it’s a U.S. democracy promotion has been of how, amid all these organizational legacy of the League of Nations). a powerful force for positive change failings, small numbers of dedicated Both books laud the 2017 selection in the world, with democratic break- talented individuals are achieving prog- of António Guterres as U.N. Secretary- throughs, for example, in Myanmar, Sri ress or at least keeping missions afloat General, seemingly a rare case of over- Lanka and Ukraine. But as challenges in the world’s worst places. coming political obstacles to select the to democracy arise, confidence in its Describing himself as one who best available candidate for the job. future is being questioned. prefers to be “an optimist who is Proponents of multilateralism can Does Democracy Matter? The United sometimes wrong, rather than a pes- only hope that Weiss is correct in argu- States and Global Democracy Support, simist who is always right,” Weiss ing that this new leadership, growing edited by Ambassador Adrian Basora, finds glimmers of hope for the U.N. threats to the United Nation’s relevance Agnieszka Marczyk and Maia Otarashvili, in recent developments. In addition and recognition of the “desperate need was released in the midst of this debate. to the increased focus on peacebuild- to reinvigorate and update rather than In this book 11 scholars and experts ing, he cites UNWOMEN, a relatively jettison the universal organization that on democracy assess the state of new organization uniting previously was essential to the current operat- democracy and its promotion, noting competing elements, as evidence that ing system” could “provide impetus that much of the powerful democratiz-

THE FOREIGN SERVICE JOURNAL | MAY 2018 77 ing momentum and euphoria of democracy assistance effec- the 1990s and early 2000s has tiveness: donor priorities, been lost, at least in the short delivery mechanisms and term. Their essays, presented design. in 10 chapters, summarize the The first portion of the results of a decade of research book ends with a chapter by and policy dialogue orga- Melinda Haring, arguing for nized by the Foreign Policy greater transparency, monitor- Research Institute’s Project ing and competition when allo- on Democratic Transitions. cating resources for democracy The authors delve into avail- assistance. able knowledge and new research In the second part of the book, on democratization efforts, whether Tsveta Petrova discusses U.S. democ- authoritarian regimes can successfully racy promotion in Eastern Europe. impede democratization, what role Michal Koran offers a more pessi- external actors can play, how to stream- mistic view in his essay, arguing that line and improve existing mechanisms democratic societies are becoming of U.S. democracy assistance, and how increasingly disenchanted by politics in to balance the need to reform and general. restore democracy. Larry Diamond describes what he In the first chapter Carl Gershman, characterizes as a “global democratic president of the National Endowment recession.” Factors such as the promi- for Democracy, addresses democracy’s nence of societal cleavages, erosion of global situation and proposes policies civic engagement and lack of account- to respond to the challenges ahead. He ability in governance, he argues, are suggests that the best way to rebuild contributing to the problem. strong international democratic convic- Agnieszka Marczyk explores new tion is to connect American citizens patterns, such as how elections can with people on the front lines of demo- be used to strengthen authoritarian cratic struggles around the world. regimes. Nikolas Gvosdev then advocates the In the final chapter, retired FSOs and American realist position, acknowledg- former ambassadors Adrian Basora and ing that while the growth of democracy Kenneth Yalowitz review the long U.S. abroad may enhance the U.S. strategic foreign policy experience with democracy position in the long term, there are too promotion and offer five general policy many compelling interests—including conclusions and recommendations. stability and security—that must take In an era of doubts about the legiti- priority in the short term. macy of democracy, this book is a major Richard Kraemer advocates a differ- addition to the literature and a valuable ent view, framing democracy assistance resource for policymakers. n in terms of political will rather than financial services and encouraging Brittany Foutz is a Ph.D. student in inter- donors to learn from past democratic national conflict management at Kennesaw transitions. State University. She received an M.A. in Sarah Bush encourages the United conflict analysis and dispute resolution States to follow the “three Ds” of from Salisbury University.

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84 MAY 2018 | THE FOREIGN SERVICE JOURNAL REFLECTIONS

The Card from Kabul

BY BEN EAST

n Afghan businessman with Mohamed spoke of Kabul, of life before the good English, admiration Russians, of his admiration for all things for the United States and a American. Acarpet enterprise in Virginia, Mohamed was a regular at our visa coun- ter in Jeddah. The next-to-last time we met—11:15 The poison gas we’d trained against? be locked in alone while the rest of the a.m., December 6, 2004—a blast-resistant We had no masks at the counter. I city knelt in prayer. window separated us. The day’s final crawled to my office for a Quickmask. There was tea, of course, and piles applicant, he was alone in the waiting Shadows crossed the blinds above my and piles of deep red Turkmen carpets. room when the high-low alarm started desk—clouds or terrorists? How many We toured his shop, dark, labyrinthine, wailing. doors between me and the gunfire? crowded with carpets and art. I felt safe “Just a minute,” I said. Time to duck A colleague in Riyadh called, hidden within this dim, antiquated scene. beneath the counter. “Get low. I’ll be described CNN’s coverage of smoke bil- We reached tour’s end and sat on right back. Sorry for this.” lowing from our compound. a pile of soft wool carpets at the rear. “No problem.” “Turn off your phone,” he said. So I Mohamed spoke of Kabul, of life before An Afghan male taking refuge in had that to think about. the Russians, of his admiration for all Saudi Arabia after the Soviets invaded What did the attackers fail to under- things American. He pulled out his wallet, his country, Mohamed knew patience stand about America to make them want and I prepared to say agreeable things where visas were concerned. We liked to kill us? What perceived failings of ours about cherished family photographs. him and he liked us, but rules were rules. mobilized their anger? Instead he thumbed a tattered card. He understood the process, though our Five colleagues were killed outside the When he handed it over, I read: “U.S. implied distrust hassled him. chancery. Ten were sent to the hospital. Information Service Library, Kabul. Gunfire erupted just outside. To Expiry: 1982.” this day I have no idea how Mohamed There was no requirement that he say reacted to it. The last time aI saw Mohamed, months anything about the place, what he’d read “Some drill,” I said to a colleague later, we didn’t speak of December 6. there, the movies he’d seen, the Ameri- crouched beside me. We didn’t speak of the visa he’d yet to can speakers he’d heard as a young man “No drill,” he replied. “Those are AK- receive. in Kabul. Those things all resided in that 47s.” Tickets to my next diplomatic assign- tattered card from long ago. The Marine called over the intercom, ment in hand, I visited his shop in Jed- He loved America, knew my country “Gas! Gas! Gas!” dah for gifts. I chose an hour when we’d as well as I did. My government had seen to that by building, staffing and supply- Ben East is a Foreign Service officer who has served in Saudi Arabia, Nicaragua, ing a library of our collective works. Ghana, Mexico and Washington, D.C. Before joining the State Department he Decades later, a refugee in a country taught English literature and composition in Malawi as a Peace Corps Volunteer that could never be his own and that had and elsewhere. His debut novel, Two Pumps for the Body Man (New Pulp Press, its share of killers who hated an America 2016), has been described as “doing for American diplomacy what Catch-22 did they didn’t know, Mohamed kept the for military logic.” His articles have appeared previously in The Foreign Service memory as close as possible, tucked in Journal, and his short stories have appeared in the online literary journals Atticus Review and his wallet among his cherished things, Umbrella Factory Magazine. deep in a pocket of his robe. n

THE FOREIGN SERVICE JOURNAL | MAY 2018 85 LOCAL LENS BY STUART DENYER n MERZOUGA, MOROCCO

Please submit your favorite, y family and I had traveled through Taghit, a small and ancient oasis recent photograph to be considered for Local town in the Algerian Sahara, into the Moroccan Sahara, near the town Lens. Images must be high of Merzouga. There, in the early hours of New Year’s Day 2017, we saw resolution (at least 300 dpi a group on camels in the distance traversing the Erg Chebbi dunes. The at 8” x 10”, or 1 MB or larger) M and must not be in print dunes are ever shifting, and one can see the sands blowing off their ridges. n elsewhere. Include a short description of the scene/ event, as well as your name, Stuart R. Denyer, an FSO, is teaching consular policy at the Foreign Service Institute. He served brief biodata and the type previously as consul in Algiers. He took this photograph with a Nikon Coolpix P530. of camera used. Send to [email protected].

86 MAY 2018 | THE FOREIGN SERVICE JOURNAL