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2 FOREIGN SERVICE JOURNAL/DECEMBER 1998 CONTENTS

December 1998 Vol. 75, No. 12

COVER COLUMNS

Focus ON HUMANITARIAN INTERVENTION PRESIDENT’S VIEWS / 5 16 / THE POLITICS OF SAVING LIVES Real Integration Needs Employee Buy-in Humanitarian intervention is a By Dan Geisler growth industry for the U.S. Here’s POSTCARD FROM ABROAD / 76 how it looks from the trenches. Riding the Trans-Siberian Rails By Andrew Natsios By James E Prosser 24 / How THE U.S. WENT INTO BOSNIA By mid-1995, with ethnic cleansing rampant, an election looming, and White House frustration growing, the impasse finally ended. Focus By Ivo H. Daalder

34 / AMERICANS SUPPORT HUMANITARIAN INTERVENTION The conventional wisdom is wrong: Polls show the public strongly backs multilateral peacekeeping — under certain conditions. By Steven Kull and Clay Ramsay

42 / PREVENTING GENOCIDE BEFORE IT STARTS The best time to stop human rights abuses Page 16 is when they’re just getting under way, says John Shattuck, who should know. By Mark Sawchuk

FEATURE DEPARTMENTS

13 / THE LESSONS OF LOCKERBIE LETTERS/7 Ten years after the bombing of Pan Am Flight 103, the CLIPPINGS / 10 consul general who dealt with the disaster looks back. BOOKS / 67 By Douglas H. Jones Banning die Korean Bomb (A Book Review Essay) SCHOOLS SUPPLEMENT By Robert M. Hathaway 50 / THE LEARNING-DISABLED CHILD ABROAD Finding the right care and schooling is IN MEMORY / 69 daunting but doable, says an expert educator. By Sally L. Smith

Cover and inside illustrations by Robert Alan Soule

THE MAGAZINE FOR FOREIGN AFFAIRS PROFESSIONALS FOREIGNSERVICE Foreign Service Journal (ISSN 0015-7279), 2101 E Street, N.W., Washington, D.C. 20037-2990 is published O U If N A L monthly by the American Foreign Service Association, a private, non-profit organization. Material appearing Editor Editorial Board herein represents the opinions of the writers and does not necessarily represent the views of the Journal, the BOB GULDIN EDWARD MARKS, Chairman Managing Editor Editorial Board or AFSA. Writer queries are invited. Journal subscription: AFSA Members - $9.50 included in ELIZABETH SPIRO CLARK KATHLEEN CURRIE annual dues; others - $40. For foreign surface mail, add $18 per year; foreign airmail, $36 per year. Periodical MITCHELL A. COHN Assistant Editor postage paid at Manchester, N.H., and at additional mailing offices. Postmaster: Send address changes to Foreign EVA-LOTTA JANSSON THEODORE CRAIG Service Journal, 2101 E Street N.W., Washington, D.C. 20037-2990. Indexed by Public Affairs Information Ad. & Circulation Manager AURELIUS FERNANDEZ Service (PAIS). The Journal is not responsible for unsolicited manuscripts, photos or illustrations. Advertising ED MII.TENBERC.ER KATHERINE INEZ LEE inquiries are invited. The appearance of advertisements herein does not imply the endorsement ol the services AFSA NEWS Editor MARY LEWELLEN WESLEY ANN GODARD ROBERTA MAHONEY or goods offered. FAX: (202) 338-8244 or (202) 338-6820. E-MAIL: [email protected]. WEB: www.afsa.org. TELE¬ Editorial Intern PHONE: (202) 338-4045. © American Foreign Service Association, 1998. Printed in the U.S.A. Send address DERVVINN GREEN MARK MATTHEWS Advertising Intern CAROLINE MEIHS changes to AFSA Membership, 2101 E Street N.W., Washington, D.C. 20037-2990. A Standard A enclosure NATHAN VAN DUSEN ARNOLD SCHIFFERDECKER is being mailed under permit 1926 at Manchester, N.H. 03103.

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Sponsored by the American Foreign Service Protective Association AMERICAN FOREIGN 1716 N Street, N.W., Washington, DC 20036-2902 S E R v i c E PROTECTIVE MuTuaL^OmaHO Phone: (202) 833-4910 E-mail: [email protected] Companies ASSOCIATION Underwritten by Fax (202) 833-4918 Web site: www.afspa.org Mutual of Omaha Insurance Company PRESIDENT’S VIEWS Real Integration Needs Employee Buy-in

BY DAN GEISLER

On October 21, President money. Some money may be saved Clinton signed the Foreign Affairs State may learn by ending duplication in infrastruc¬ Reform and Restructuring Act of ture and facilities. Some, but proba¬ 1998, ending a long period of sus¬ something from bly not very much. Economies of pense that began back in April 1997. scale generally result from merging USAID is now under the policy USIA, which is a like-sized organizations, not from direction of the secretary of State. integrating two small units into a By this time next year, the U.S. Wang-Free Zone. substantially larger one. Information Agency and the Arms In the short term, integration will Control and Disarmament Agency increase operating costs as we move will be merged into the State people to new offices and make Department. By the time this issue computer systems compatible. of the Foreign Service Journal Given the severe downsizing at both reaches readers, the administration nearly 10 times the staff of USIA and State and USIA over the past eight should have submitted its detailed ACDA combined, is notoriously years, Congress shouldn’t expect plan to Congress for bringing about resistant to innovation. Dozens of savings through reductions either in this integration. studies, including two that were U.S. citizen or Foreign Service More than a year and a half ago, released in October by Washington national positions. AFSA announced a set of principles think tanks, have identified prob¬ One final point. Ask a group of to govern the retooling of Americas lems at State. State’s Strategic MBAs to list the key requirements foreign policy structures. Today, our Management Initiative showed us for successful organizational change, fundamental goal remains only three years ago just how hard it and you’ll find one item on every¬ unchanged: to create an institution is for State to make even minor one’s list: employee buy-in. in which foreign affairs professionals changes. It was a struggle to aban¬ In the spring of 1997, AFSA field¬ can meet the expanding challenges don States ridiculous system of col¬ ed volunteers to participate in the to Americas national interests. This ored-coded letterhead for Seventh working groups that were develop¬ institution must reflect the central Floor memoranda, and to abolish ing the integration plan. importance of sustainable develop¬ largely useless reports such as the Management communicated regu¬ ment, arms nonproliferation and Annual Minerals Questionnaire. larly with employees on the results. public diplomacy. This institution Agency integration affords us a But just when management started must preserve the special missions rare opportunity for fundamental to mold tlie output of the individual and skills of USIA and ACDA. change at Main State. It is an oppor¬ working groups into a proposal for The administration said it intends not tunity for State to adopt superior the secretary of State, employee just to preserve these functions, but to practices, particularly from USIA, in involvement ground to a halt. make them more central to foreign such areas as personnel manage¬ That was a mistake. State, USIA policy. There’s cause for skepticism on ment and information technology. and ACDA will never combine into a this point. USIA is a Wang-Free Zone. single, effective foreign affairs institu¬ The State Department, with The administration has not said tion without die support of die people veiy much about savings. But the who implement die policy. That’s true Dan Geisler is president of the legislation shows a clear congres¬ no matter how we draw the boxes on American Foreign Service Association. sional intent that integration save the organizational diagram. ■

DECEMBER 1998/FOREIGN SERVICE JOURNAL 5 J. KIRBY SIMON FOREIGN SERVICE TRUST AN INVITATION TO PROPOSE PROJECTS FOR FUNDING BY THE J. KIRBY SIMON FOREIGN SERVICE TRUST IN 1999

The J. Kirby Simon Foreign Service Trust is a charita¬ school in Flonduras; provisioning for an English lan¬ ble fund established in the memory of Kirby Simon, a guage pre-school in Uzbekistan; a training program Foreign Service Officer who died in 1995 while serv¬ in participatory musical education for Malaysian ing in Taiwan. The Trust is committed to expanding school teachers; a summer day camp in Ukraine for the opportunities for professional fulfillment and com¬ American and host country children. munity service of active Foreign Service Officers and • Female Inclusion in Sports: A women’s softball team their families. (the “Gazelles”) in a South African township; a boys’ and The principal activity of the Trust is to support pro¬ girls’ basketball club (the “Chariotters”) in Burkina Faso. jects that are initiated and carried out, not in an official capacity and not on official time, by Foreign Service The Trust now invites the submission of proposals Officers or members of their families, wherever locat¬ for support in 1999. It is anticipated that most of the ed. The Trust, however, will also consider proposals new grants will fall within the same funding range as from other U.S. Government employees or members the 1998 awards. It is also expected that projects of their families, regardless of nationality, who are assisted by the Trust will reflect a variety of interests located at American diplomatic posts abroad. and approaches, some of which are illustrated by the In 1998 the Trust made its second round of grants 1998 grants. Other possible projects include, for — 18 in number, ranging in amount from $400 to example, studies of governmental policies affecting $3000, for a total of $24,800. These grants support¬ FSOs’ professional achievement and personal well¬ ed the following projects (further described in a Trust being; measures to increase public awareness of the announcement entitled “Grants Awarded in 1998,” work of the Foreign Service and the lives of its mem¬ available on the Web — see below): bers; or programs to expand knowledge and stimulate thought, on the part of Government personnel, con¬ • Facilities for the Disabled: A science laboratory for cerning critical foreign affairs topics (including human orphaned or abandoned children at the Holy Land rights and environmental issues). Deaf School in Jordan; a weekend educational- Grants provided by the Trust can be used to defray recreational center for deaf persons in Congo; an a wide range of project expenses, such as acquisition audio library for visually impaired university students of equipment, books and supplies, travel and data col¬ in Ethiopia. lection costs, and dissemination of materials. Grant • Facilities for Children: A shelter for Senegalese funds from the Trust, however, cannot be used to pay girls abused or rejected by their families; refrigera¬ salaries or other compensation to U.S. Government tion for a children’s food and medicine dispensary in employees or their family members. Because of the Niger; provisioning and other support for an orphan¬ limited resources available to the Trust, it is not in a age in Bolivia. position to support projects that, in the view of the Trustees, have reasonable prospects of obtaining all • Libraries: The first library in a 300,000-person “infor¬ the funds they need from other sources, or that pro¬ mal neighborhood” in Lima, Peru; modernization of pose to conduct activities closely similar to those an English library serving the residents of Merida, undertaken by other public or private programs, or Mexico. that cannot be carried out effectively with Trust-size • Educational Expeditions: Visits to a game reserve grants. in Botswana for children of Foreign Service A proposal should include a description of the pro¬ Nationals and to a new national museum in New ject, what it is intended to achieve, and the role to be Zealand for Maori/Pacific Island children. played by the applicant(s); a preliminary plan for dis¬ seminating the results of the project; a budget; other • Informal Education: An “English Corner” in Japan, available funding, if any; and a brief biography of the offering informal exchanges between Okinawan stu¬ applicant(s). Proposals should not be longer than five dents and American guest speakers; educational- double-spaced pages (exclusive of the budget and bio¬ recreational parties on U.S. holidays for children liv¬ graphical material). ing in a Brazilian orphanage. Proposals for projects to be funded during calen¬ • Other Educational Programs: An exchange pro¬ dar year 1999 must be received by the Trust no later gram between an international school and a rural than February 28, 1999.

Proposals should be sent to the J. Kirby Simon Foreign Service Trust, by mail to 82 Edgehill Road, New Haven, CT 06511, by fax to 203-432-0063 or by e-mail to [email protected]. Inquiries should be directed to one of the above addresses or by phone to 203-432-2698 Further information can be found on the Web at http://www.yale.edu/lawweb/lawfac/simon/trust.htm

6 FOREIGN SERVICE JOURNAL/DECEMBER 1998 Selling Ambassadorships fact function in that manner during burger and french fries — his par¬ ents became masters at the art of In the AFSA News section of most of the Carter years, reportedly defining those quintessential your October 1998 issue, Willard with some effectiveness. The acade¬ American foods to puzzled Spanish DePree has a report by an AFSA ad my, after its creation in 1983, did provide an independent assessment waiters. And he introduced me to hoc working group on “The Selling for the Senate Foreign Relations Ovaltine, because he would only of Ambassadorships.” The American drink chocolate milk, and his mother Academy of Diplomacy shares the Committee until 1991 on all nomi¬ figured out mixing the chocolate concern expressed in this report nees, career and non-career. It no longer does so, except when it sees a powder into regular milk was the about ambassadorial appointments nomination egregiously lacking in only way to get nutrients into her that do not rest, first and foremost, qualifications other than politically lanky first grader. on demonstrated qualifications for inspired financial contributions. It My family served with J.L. (who the job, be the appointee career or grew up to be known as Jay) and his non-career, and seeks through its has done so only once during the current administration. family at the U.S. embassy in Madrid programs to make that point loud The academy shares the reports during the early 1980s. J.L. was the and clear. That has been among its conclusion that an independent lad brother of Edith, one of my clos¬ central purposes since its founding advisory group of some kind could est friends, so most of the time we in 1983. didn’t hang out with him. Edith and The report includes one inaccuracy, well be helpful to a president in the I rolled our eyes at his antics and however. It states that the academy, choice of ambassadors. Bruce Laingen sometimes we’d make him cry big during the Carter administration, President, the American crocodile tears when we didn’t pay acted as an independent vetting Academy of Diplomacy him enough attention. body for President Carter for Washington, D.C. But when I read the newspaper prospective ambassadorial nomi¬ Sunday, August 9, I paid lull atten¬ nees. The academy was not in exis¬ tion. There was J.L., listed as Jay tence at that time. Remembering J.L. Bartley, son of Consul General The reference should properly be Julian Bartley, among the confirmed to a committee set up by Carter, J.L. Bartley knew how to work a dead from the bombing at the U.S. chaired first by W. Averell Harriman room. Even at five and six years old, embassy in Nairobi, Kenya. A few and later by former Governor he kept a serious expression — minutes later I turned on CNN. Reubin Askew of Florida, that did in nearly a pout — on his face until he caught your eye, your ear. Then he’d Julian Bartley was also among the break out a funny story or a line and dead. The Foreign Service Journal welcomes follow it with a huge smile. I grew up as a Foreign Service your signed letters to the editor. Please Once when my family and his kid. My family knows plenty of peo¬ mail letters to the Journal, 2101 E St., family went to the beach on Spain s ple who have been evacuated from NW, Washington, D.C., 20037; fax to eastern coast, he danced around the posts, lived through revolutions, just (202) 338-8244; or send via e-mail to room singing “We Are Family” until missed death when terrorists [email protected]. Letters, which are everyone in the room was laughing attacked. But for the first time, subject to editing, should include full and clapping along with him. someone I know has been taken name, title and post, address and day¬ In restaurants all across Spain he away from his family through an time telephone number. refused to order anything but a ham¬ insane act of violence.

DECEMBER 1998/FOREIGN SERVICE JOURNAL 7 LETTERS

Even after I’d seen the names on of terminology such as reengineering, modes of behavior into account when television, I thought there might be a reinvention, and human resources. adopting new structures. This last mistake. Maybe there was another Inventing and engineering apply to tendency is the most offensive of all. Julian Bartley with a son named Jay. human manipulation of inanimate Whatever culture the teamwork But then the news cut to a clip of objects. We can feel Alice’s anguish, concept was borrowed from, or Edith reading a statement outside when, in the “Dilbert” strip, she cries whether it was created from scratch, the State Department, confirming “I am not a resource!” Resources like in the new meaning it is not that her father and brother were ores, minerals and grains are easily American. One of the most meaning¬ gone. Edith, so grown up, so poised, disposed of. People, on the other ful icons of my youth was die sign on so strong. And then the photos hand, should be treated with dignity President Truman’s desk that said flashed on the screen. Julian and Jay, and understanding. “The Buck Stops Here.” This was not next to each other, both looking so A second principle is to redefine evidence of a totalitarian mindset. On much alike. There was no way to hide common-sense concepts in a pseudo¬ the contrary, it reflected the ideals of behind denial any longer. scientific manner. When we first a society that at that time held the I wish I could spend five minutes heard that USAID was going to insti¬ traditional American values of self- with those who chose to take so many tute “teamwork,” many of us thought reliance, common sense, and individ¬ lives. I want to tell them about my we knew what that was. Given a ual responsibility. friend, Edith, and her mother, Sue, chronic scarcity of staff, we have The attack on traditional modes of who just lost the other half of their always, and automatically, formed behavior takes on other forms as well. family. I want to tell them that — ourselves into teams in order to get There is a sign on the wall of the because of their actions — I will things done. We have since found room in which our team meetings are never be able to listen to “We Are that “teamwork” means something held that says “Avoid blocking behav¬ Family” the same way again. quite different. What we now have is iors such as ‘yes but.’” There was a And I want to tell them about J.L. institutionalized and permanent, time when project committee meet¬ and how I secretly thought it would¬ with mentors, coaches, facilitators, ings were lively and contentious n’t be so bad to have a little brother and leaders. Instead of being a way of affairs, where individuals did not just like him. mobilizing scarce resources to spare each other in the discussion of Eugenia E. Gratto achieve a quick and decisive end, the goals or mediodology. It was less like¬ Arlington, Va. chief product of teams has become ly to be “yes, but,” tiian “over my dialogue and participation. Reams of dead body!” It would have been con¬ paper are produced to show results, sidered unprofessional to be squea¬ The Behaviorists Are Coming! while real results are more difficult to mish in hard and honest debate. In the late 1980s a pernicious achieve because all the responsible In those days there was passion in trend appeared in the federal govern¬ people are in meetings. our work. Passion is no longer a core ment’s organizational activity. Two and a half years ago, some value. There is no room for intro¬ Behavioral sciences were called upon contract behaviorists came to verts, eccentrics, or curmudgeons. As to assist in deciding how public ser¬ Moscow to explain teamwork to far as I am concerned, it was precise¬ vants were to behave and to interact USAID/Russia. Our Russian col¬ ly the high definition of character with the public and with each other. leagues found this all very amusing. among USAID people when I joined Mere professionalism was not They explained that die “teams” the 18 years ago that made it such an enough. Civil servants were being behaviorists described were exacdy exhilarating place to work. asked to change their culture. like the factory committees that exist¬ With changes in communications Behaviorists observe certain prin¬ ed under their recently abandoned technology and in the philosophy of ciples in approaching their tasks socialist system. government coming faster and faster, which most of us who have sat A third principle is that all cul¬ it will take all our efforts to maintain through Psychology 101 or Sociology tures are relative. Cultures have no USAID as a relevant player in the 101 will recognize. moral content or value in and of foreign assistance game. We have to Foremost is a mechanistic themselves. Thus organizations do keep our minds free of cant and jar¬ approach that is manifested in the use not need to take traditional values or gon. We have to maintain our profes-

8 FOREIGN SERVICE J OU RN AL/D EC EM B ER 1998 LETTERS

sionalism above all. The excessive them in the post-ideological era munications technologies can pro¬ concentration on process, internal needs to “show the flag” or represent vide many of those capabilities. organization, and politically correct America (or American architecture), • Wean ourselves from the notion language keeps getting in the way. which is being done in any case by that ambassadors need to live like Lets have some faith in ourselves, thousands of travelers, business peo¬ potentates overseas in order to rep¬ and rediscover our old values of pas¬ ple, and exported products; resent the U.S. properly. With a few sion, commitment, respect, and hon¬ • Most diplomatic activities now exceptions, embassy residences so est language. do not require securing sensitive far have escaped direct attack by ter¬ Arthur Laemmerzahl information against resourceful rorists, but they usually are softer FSO, USAID spies. Commercially available targets than chanceries and often are Cairo encryption will suffice for probably symbolic “statement” buildings 95 percent of even sensitive diplo¬ themselves. (Besides, having ambas¬ matic traffic — and most diplomatic sadors live in normal housing would Against Fortress Embassies traffic is not sensitive. do a better job of representing the Most thinking about how to pro¬ Fortifying symbolic buildings, ideals of American democracy, and tect embassies from attack has armoring cars, and adding guards might reduce the appeal of ambas¬ focused on the building: how to increases defensive strength, but also sadorships to non-serious, wannabe armor it, distance it from the threat, emphasizes the symbolism of our ambassadors.) defend it with police and Marines, buildings and vehicles. We thereby As these adaptations are made, and know when and how attacks enhance the attractiveness of the tar¬ the U.S. can sell off a great deal of against the building might take gets (to terrorists) while increasingly expensive real estate to normal com¬ place. This thinking, however, is nar¬ separating our diplomats from their mercial and private uses. Further, to row and ultimately misguided. An real functions. the degree that we restrain our initial embassy is not a building: it is a What, then, to do? urges to spend lavishly on strength¬ diplomatic mission. Given modem • Immediately begin to reduce ening embassy defenses around the advances in communications, the our dependency on chanceries by world, we will have more money to mission of diplomacy can be con¬ ensuring that all important diplomat¬ invest in the real substance of our ducted from many buildings, from ic activities can be conducted outside diplomacy, to wit, advancing our vehicles, on foot, or, sometimes, even a central chancery. Begin with the national interests abroad. by telemetry (viewing Iraqi weapons easiest functions (commercial, These changes have to be made sites, watching riots, stock markets or USIA, agriculture, treasury, econom¬ gradually and subtly so that they do parliamentary sessions). ic, etc.). Let those officers work from not give the impression that the U.S. To hew to the idea that an commercially-leased offices around is fleeing terrorists by cutting and embassy is an important building town(s), from their residences, or running. The opposite will be the (traditionally called a chancery) from no offices at all. Other case. By getting our people out of housing the ambassador and his suite American businesses conduct their our isolated diplomatic fortresses, will simply offer bombers Americas (often sensitive) activities in this way our diplomacy most likely will be glass jaw. We cannot sufficiently for¬ without creating symbolic headquar¬ invigorated and made more effec¬ tify buildings against physical attacks ters buildings. Thus, even in the tive. These changes respond to the without impeding the real substance short term, a terrorist attack on an new era of openness, decentraliza¬ of diplomacy overseas, which is existing chancery will not hobble our tion, individual accountability, and accessing information and delivering diplomacy. rapid and effective communications representation. • During the next few years, technologies. There are better ways, because: develop our capabilities of delivering Charles A. Schmitz • Diplomatic information is not all diplomatic services (informing, Chairman collected or exchanged inside a sin¬ analyzing, representing) and con¬ Global Business gle building; sular services (visas, passports, citi¬ Access, Ltcl. • Diplomats can work and collab¬ zen protection, authentication) away Washington, D C. orate from various sites, and none of from chanceries. Improved telecom¬ Retired FSO ■

DECEMBER 1998/FOREIGN SERVICE JOURNAL 9 CLIPPINGS

WORLD NEWS: NO first-rate international stories to U.S. dailies, but they are seldom used. While LONGER FIT TO PRINT a big story like the embassy bombings in In the heyday of Walter Cronldte and East Africa or nuclear explosions by John Chancellor in the 1960s, at least 40 Pakistan and India will make the front percent of network television news was page, such breakthroughs are rare. One international. These days the figure is at study showed 2.6 percent of the non¬ best 12 percent and falling. advertising space in 10 major U.S. “The FY 1999 That’s one of the sobering facts cited papers is devoted to foreign news. by Peter Arnett in “Goodbye World,” an Most American papers started cut¬ omnibus extensive look at die state of foreign news ting back international news in the ’60s coverage in America published in the and ’70s, when it became clear that TV appropria tions November American Journalism Review. was delivering the breaking news with Arnett is an international correspondent an immediacy the print media couldn’t bill makes a for CNN, and was formerly a foreign cor¬ match. Later, says Arnett, with the after- respondent for the Associated Press. math of Vietnam and then the end of the strong state¬ Arnett focuses on die diminishing space Cold War, television itself began to ment that given to international news in U.S. newspa¬ deemphasize world news. pers. He quotes Edward Seaton, the presi¬ That also means less coverage of the funding for dent of the American Society of State Department — once a major news Newspaper Editors: ‘The top 50 papers in beat. Arnett found one full-time newspa¬ international the country do a good enough job — the per reporter stationed in Foggy Bottom other 1,550 dailies don’t do anydiing.... For (by The Washington Times). Other journal¬ affairs programs die average citizen of the United States, ists, if tiiey miss a State Department brief¬ diere is no international news available any¬ ing, figure they can read the transcript or and activities where unless there is a major crisis.” see it on C-SPAN or the Internet. In journalism schools, and among Newsweeklies show the same trend. remains a high most newspaper editors, Arnett finds a Time magazine, which had 21 percent of priority of this dogmatic belief has taken hold: If it’s not its news pages devoted to international local, it doesn’t sell papers. That, despite news in 1987, is down to 12.9 percent this administration. ” a 1996 poll by the Pew Research Center year. U. S. News and Newsweek have also for the People and the Press, which dropped to the 12-13 percent range. asked readers what lands of news stories —SECRETARY OF One bright spot is the expansion of they follow. Fifteen percent said inter¬ STATE MADELEINE international business news. Of the 286 national news, one point below journalists stationed abroad by U.S. ALBRIGHT IN A LETTER Washington politics, and slightly ahead newspapers, 100 work for the Wall TO THE COALITION TOR of the consumer and celebrity news that Street Journal (including international AMERICAN are a staple of today’s lite journalism. editions). Runners-up are The New York LEADERSHIP A BROAD, Visiting newsrooms around the coun¬ Times with 38 correspondents, The Los Nor. 4, 1998 try, Arnett finds that the Associated Angeles Times with 28 and The Press and other wire services send some Washington Post with 25.

10 FOREIGN SERVICE ] OU RN AL/D EC EMB ER 1998 CLIPPINGS

The individual papers’ efforts are Arms Control and Disarmament dwarfed by those of the wire services: Agency, and the incorporation of their Reuters has about 1,700 journalists functions into the State Department. (including photographers and editors) in The International Broadcasting Bureau 147 foreign bureaus. Other major play¬ will be a separate entity. ACDA will be ers are the Associated Press (400 officially “integrated” into State on April reporters), Bridge News (formerly 1, 1999 and USIA on Oct. 1. Knight Ridder) 300 reporters, and Moves to pay U.S. arrears at the United YEARS AGO Bloomberg News Service with 226 Nations fell apart this year, as they have reporters. Nine years ago, Bloomberg the last several years, because the admin¬ didn’t even exist. istration and House conservatives disagree ‘ One of the on abortion-related language. The amount due (over $1 billion) is now large enough most common that in January tire U.S. is theoretically in CONGRESS: FUNDING UP danger of losing its vote in the U.N. difficulties in the BUT U.N. LOSES OUT General Assembly, though it is expected whole field of As the 105th Congress adjourned to that the administration will find stopgap face the voters, it left behind a foreign funding to avoid that embarrassment. international affairs budget with a veiy mixed mes¬ The White House got its full request relations arises sage. While the budget adequately fund¬ of $17.9 billion for the IMF, including ed foreign affairs agencies and the $3.4 billion for New Arrangements to from differences of International Monetary Fund, U.S. Borrow and $14.5 billion for the U.S. cultural assumption. ... arrears at the United Nations were once quota payment. The bill added new con¬ again left unpaid. ditions on the IMF, including interest at The problem has Much of the foreign affairs budget for market rates, shorter loan terms and fiscal 1999 was incorporated into a huge greater transparency. been succinctly $500 billion omnibus appropriations bill. The Commerce-Justice-State appro¬ staled in folk terms The total discretionary budget authority priation bill, which is supposed to cover for the “150 account” for foreign affairs budgets for State, USIA and other key by the Roumanian was $19,996 billion, versus $19,053 bil¬ functions, was tied up over the contro¬ proverb which says, lion in fiscal ’98 — a 4.9 percent increase. versial issue of whether to allow statisti¬ That does not include $18 billion for the cal sampling in the 2000 census. As a ‘The foreigner IMF and an emergency supplemental result, the omnibus budget bill — which authorization of $1,823 billion for now includes the CJS package — stops scratches us where funding for CJS on June 15, 1999, by embassy security, drug enforcement and we don't itch. " other foreign operations. which time the Supreme Court should As one satisfied Democratic Hill have resolved the census question. — FOREIGN staffer wrote FSj, “So much for the While the bill appropriates funding for SERVICE JOURNAL, tight-fisted Republican Congress!” the entire year, it lacks a “trigger mech¬ NOVEMBER 194S The bill also includes the abolition of anism” to release funds after June 15, so the U.S. Information Agency and the Congress must devise one.

FOREIGN SERVICE JOURNAL 11 CLIPPINGS

The Foreign Operations total is ple still lead lives of terrible poverty, about $13.4 billion, with USAID’s the Associated Press wrote Sept. 9. “Where appropriation at $2,639 billion. While global consumption has Programs that came out well in fiscal ’99 grown enormously, now topping $24 patriotism is include development assistance, the trillion per year, many still suffer a virtue it is Peace Corps, tire Ex-Im Bank and assis¬ “human deprivation and stunted lives,” tance to the former Soviet Union. said the U.N. Development Program hard to The omnibus bill also includes language document. affecting retirement, evaluations and other The richest 20 percent of the world’s espouse a aspects of work in the foreign affairs agen¬ population consume 86 percent of the brotherhood cies. For those particulars, see the AFSA planet’s goods and services; the poorest News section of this issue, page 1. 20 percent consume just 1.3 percent. that laughs at But even those in poor developing countries have made some progress in boundaries." POVERTY AMIDST recent decades, the report said. Since CONSUMPTION BOOM 1960, infant mortality rates in develop¬ The United Nations Human ing nations have decreased more than AIWA EBAN Development Report for 1998 shows 50 percent, child malnutrition has that worldwide consumption has sky¬ declined by 25 percent and school rocketed, but more than a billion peo¬ enrollment has more than doubled. ■

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12 FOREIGN SERVICE J OURN AL/DECEMBER 1998 LOCKERBIE, TEN YEARS LATER

In December 1988, Pan Am Flight 103 exploded over Scotland, The consul general on the scene looks back.

BY DOUGLAS H. JONES

inter days in Scotland self-pity. Why now? Up to that moment the major tend to be what the disaster of the year for me had been bureaucratic: Scots themselves call a budget cut that eliminated 60 percent of the driecli: damp, dreary consulate staff positions only a month before. and dark. Add windy How were we going to cope with this? and you have a pretty Ed told me that U.S. Ambassador Charles fair description of Price would fly up to Scotland that night and December 21, 1988. I would bring a team of consular officers along who had spent the better part of that day fighting traf¬ would be detailed to us for as long as we needed fic and the elements on the 100-mile drive to the them. We agreed that I should get our office up U.S. Naval Station at Edzell, where we picked up and running before heading for the crash site. our diplomatic pouches twice a month. Once back When I reached the consulate, some of the staff in Edinburgh, I ate a hast)' dinner, put my five- was already there; the rest were called in. year-old son to bed and sat down to read the I requested permission from the Scottish newspapers when the phone rang. authorities to pass through the roadblocks that The caller was Ed Kreuser, consul general at had been set up for miles in and out of Lockerbie, the U.S. embassy in London and the senior con¬ where, we had by now learned, a Pan Am airliner sular officer in the U.K. headed for New York with 259 people on board — “Have you been watching television?” he mostly Americans — had crashed. After a quick asked. call to let the State Department know we were “No,” I replied. operational, I departed, along with Foreign “I’ve seen reports that a U.S. carrier 747 has Service national John Hastie, for the first of what gone down in southern Scotland.” were to be countless trips to the previously My first response was denial. Jumbo jets out of obscure Scottish village 80 miles away. London didn’t fly this far north before heading I had been in Scotland for two-and-a-half years west. It had to be a mistake. but never visited Lockerbie. It had none of the I am afraid my second reaction was less than high-tech commercial importance of the country’s admirable. “Why us?” I asked myself in a wave of central belt, nor the cultural, scientific and histor¬ ical significance of the great university centers of Douglas Jones, a retired FSO, served as U.S. Edinburgh, Glasgow or Aberdeen. It had no consul general in Edinburgh from 1986 to 1989. North Sea oil, nor was it a hotbed of Scottish

DECEMBER 1998/FOREIGN SERVICE JOURNAL 13 nationalism. There were no castles friends and relatives at JFK Airport or lochs, no seaside golf links. I had in New York knew all too well exact¬ passed it a hundred times en route ly whom they were waiting for, even elsewhere, but until that night I had 1 had driven by if we did not. no reason to stop. The bombing of Lockerbie a hundred In the hours that followed, the Pan Am 103 not only provided a rea¬ dimensions of the disaster became son; it made Lockerbie synonymous times, but never had clearer. The explosion amid high the world over with the senseless winds had scattered the plane, its tragedy of terrorism. reason to stop. passengers and their belongings for miles in every direction. The recov¬ A Grisly Arrival ery effort would require rescue We arrived in Lockerbie about 11 forces supplemented by military p.m., four hours after the crash. The units to scour the countryside rain was pelting down and a few hous¬ My first meeting with the chief through fields, fens, bogs and woods. es still burned. Fire and rescue rein¬ constable lasted two minutes in the In addition to most of the victims forcements from Glasgow, 60 miles hallway of police headquarters. I felt (some were never found), and the away, were directing traffic, getting I was intruding, given the chiePs generic contents of the airplane, power restored and trying, despite the more immediate tasks, but I was not some 16,000 items of personal prop¬ darkness, to assess the extent of dam¬ alone. Representatives from Pan erty would eventually be recovered age. The townspeople were holed up Am, investigative authorities, foren¬ in the search, examined as possible in their houses, in shock. Except for sic experts, individuals representing evidence and, in the case of the per¬ disaster crews and die rapidly assem¬ religious groups and dozens of other sonal effects, turned over to the con¬ bling media, few people were to be organizations with responsibilities sulate for return to the victims’ heirs. seen. Those who had survived count¬ pertaining to the disaster were gath¬ Ambassador and Mrs. Price ed their blessings and wondered ering in Lockerbie. By morning, the arrived at three a.m., with the about diose who had not. local school was headquarters for all promised team of consular officers. I After making some preliminary of us, and the town hall had become accompanied the Prices to the sites inquiries, I was told the chief consta¬ a makeshift morgue. The areas few of major impact. ble of police could see me in an hotels were soon taken over by these Shortly before dawn, I learned that hour, so I explored the town on foot. officials and the media. It appeared the assembled emergency forces were The main section of the fuselage of that the people of Lockerbie had not being briefed by the police before Pan Am 103 had struck near the heart only lost neighbors in the tragedy, heading out in search of the planes of Lockerbie, atomizing several build¬ but were about to lose their town for flight recorder and other evidence ings and their occupants and burying the foreseeable future. that might reveal the cause of the itself in an enormous crater. The smell tragedy. I slipped in the back door, of jet fuel pervaded the air. There The Seareh for Victims tried to make myself inconspicuous were no functioning street lights and I tried to find out how many and listened, along with 200 to 300 the darkness made it difficult to get a Americans had been on board the grim-faced men and women in uni¬ feel for the shape of the town in nor¬ flight, but Pan Am representatives at form. The police and security author¬ mal times. Powerful spodights sweep¬ the scene, who would prove to be ities conducting the briefing told ing drrough the town revealed grisly enormously helpful in the coming them that whatever they found, some tableaux: a victim sitting on a rooftop weeks, were initially skittish about of which would be quite horrifying, still strapped in an airline seat, an showing me a passenger manifest. must be treated as potential evidence. overturned automobile, luggage and The reason was woefully obvious. The world would be watching how its contents strewn across the road. They had only the sketchiest data they conducted themselves and noth¬ The lights moved on and the images about the passengers and weren’t ing must be overlooked. L(X)ting or receded into darkness. It seemed to even sure whether the names they souvenir gathering would be severely me impossible that anyone from the had were those of the passengers on punished. plane could have survived. I went board. Information about the num¬ At first light, Ambassador Price back to my car phone and reported ber and nationalities of passengers and British Secretary of State for what I had seen in my first situation was next to impossible to come by in Scotland Malcolm Rifland gave a report to the embassy in London. Lockerbie that night, but anxious continued on page 46

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 15 Focus ON HUMANITARIAN INTERVENTION

THE POLITICS OF SAVING LIVES

HUMANITARIAN INTERVENTION IS A GROWTH INDUSTRY FOR THE U.S. HERE’S A VIEW FROM THE TRENCHES.

BY ANDREW NATSIOS

hen I took over as director of tire Office of Foreign Disaster Assistance in June 1989,1 wanted to do some intensive reading and studying to prepare myself. I never had the chance. During my first week on the job, three crises confronted me simultaneously. First, the Tiananmen Square mas¬ sacre was in progress, broadcast to the world over CNN. President Bush had promised medical support for the wounded students. Then, the worst train wreck in Soviet histoiy had just occurred, caused by a natural gas pipeline explosion. More than 800 people had been killed, and many more were dying from bums. The president and secretary of State wanted

16 FOREIGN SERVICE ] OU RN Ah/D EC E M B ER 1998 Focus

to provide humanitarian support, and Humamtanan national interest. The existing disaster also wished to send an unspoken mes¬ relief mechanism within OFDA is sage of support for Mikhail Gorbachev intervention had its turned on by the issuance of a disaster and his reform agenda. declaration by the U.S. ambassador to At the same time, a famine was rag¬ worst moment on the country and OFDAs acceptance of ing in southern Sudan which had killed the declaration. Under this procedure more than a quarter of a million peo¬ Oct. 3, 1993, when three tests must be met: U.S. disaster ple. Col. John Garang, the commander response must be deemed by the of the rebel force fighting the 18 U.S. soldiers were ambassador to be in the interests of Northern government, was in the U.S. government, the disaster Washington and wanted to see me. killed in Somalia. must be beyond die capacity of the Our meeting lasted several hours, local authorities to respond to it, and during which I heard littie about the the national government must have famine but a great deal about Sudanese politics and the requested assistance. Thus, most disaster work is done civil war. automatically under this long-established procedure. These three disasters were a microcosm of what I was to confront during my nearly four years in office. While The Official Rules eveiy crisis involved the technical disciplines of disaster Even in die case of complex humanitarian emergen¬ response — food and nutrition, shelter, emergency med¬ cies, OFDA and its sister agency, Food for Peace, provide ical care, water and sanitation and preventive health relief assistance under this same regular procedure. It is interventions — each crisis also involved, to varying only when troops and diplomatic capital are required that degrees, a dose of international relations. American intervention becomes more problematic. The The United Nations, American diplomatic interests, simple fact is that when U.S. troops are involved, die U.S. and military tactics all figured into die equation, espe¬ government does not have a consistent policy for when to cially when civil wars were in progress. As State wished in intervene and when not to. some cases to keep rebel movements in Africa at arms The cause of humanitarian intervention probably had its length, our office — part of the Agency for International most difficult moment in recent years on October 3,1993, Development — spent lots of time dealing with rebel when 18 U.S. soldiers were killed in Somalia. In die wake commanders, negotiating safe passage for relief com¬ of that incident, die Clinton administration in May 1994 modities. issued Presidential Decision Directive 25, which contains an onerous set of conditions for determining when die ‘Normal’ Disasters Are Easy United States will intervene in a crisis using U.S. troops for The United States provides disaster relief in most major peacekeeping or peacemaking operations. The conditions disasters for a variety of complex, sometimes contradictory include: a) a finding of U.S. national interest for the inter¬ reasons, which sometimes change as the disaster progress¬ vention (whatever this means in the post-Cold War world); es. Disaster policy, like foreign policy, has become more b) the presence of a threat to international security (the lan¬ ambiguous with the Western victory in the Cold War, and guage from the U.N. charter required for intervention but the disappearance of easily identified threats to the survival difficult to demonstrate prospectively); and c) the consent of the United States over the past decade. of the parties in the conflict (which is seldom obtainable The U.S. government provides disaster relief in most given tiiat one side is frequentiy attempting to do away with natural disasters with no media coverage, no pressure another side and wants no interference). The policy, not from Congress, and no presidential determination of surprisingly, has not been consistentiy applied. Because disaster relief enjoys widespread support Andrew Natsios is a senior fellow at the U. S. Institute of among the American people (80 percent in one survey Peace. During the Bush administration, he was the direc¬ done by die University of Maryland) and in bodi parties tor of the U. S. Office of Foreign Disaster Assistance. in die Congress, its provision is most often not contro-

DECEMBER 1998/FOREIGN SERVICE JOURNAL 17 Focus

versial. Senators as ideologically diver¬ Larry Eagleburger, importance. When I was first offered the gent as Jesse Helms (R-N.C.) and job as director of OFDA, I resisted tak¬ Senator Ted Kennedy (D-Mass.) have when he was a young ing it, as I thought my duties would be been enthusiastic supporters of disas¬ focused on moving commodities around ter relief funding. Conservatives do FSO in Yugoslavia, widi no policy or political implications. I not object to disaster relief because it was quickly disabused of that illusion. does not involve controversial social got the U. S. to Though humanitarian interventions policies such as family planning or have a growing importance in U.S. for¬ environmental protection. The only organize its disaster eign relations, they are by no means two seriously divisive U.S. disaster new. President Woodrow Wilson in interventions in the past decade were assistance. 1914 asked Herbert Hoover to orga¬ in Somalia (but only after the killing of nize a massive relief effort during American troops), and North Korea, World War I. Over the next nine years, where geostrategic issues predominate. 211 private American charities, along with the U.S. and While media pressure does play a role in affecting foreign governments, distributed millions of tons of food U.S. disaster policy in a few cases, the so-called “CNN and clothing to war-tom Europe. When the Russian effect” has been seriously exaggerated as a reason for Revolution and civil war led to famine in the early 1920s, U.S. government intervention. Scholarly research indi¬ Hoovers relief organization helped to keep millions of cates that even in die case of Somalia, the U.S. response Russians alive. After the Second World War, Hoover preceded widespread media coverage. again led a similar relief campaign in Europe and the Some security analysts and active duty military (I drink Soviet Union. However, in contrast to some recent U.S. a minority) argue that U.S. forces should not be interventions, the earlier ones did not require troops to employed anywhere other than where vital national inter¬ protect the relief missions. ests are involved. These writers opposed die Gulf War and the Bosnia intervention witii the specious argument “Complex Humanitarian Emergencies” that no national interest was involved in die Arabian More recently, OFDA has generally been a favorite peninsula or the Balkans. Using tiris line of reasoning, it agency of most U.S. ambassadors, particularly in disaster- would be difficult to find any national interest anywhere prone countries. Indeed, former Secretary of State Larry in the world except a direct attack on the borders of die Eagleburger, back when he was a junior Foreign Service United States — a throwback to 1930s-style isolationism. officer, is generally regarded as the person who got OFDA Clearly, some old-school military officers are uncomfort¬ started. That occurred in 1963, after die U.S. govern¬ able with their new role preserving order in anarchic soci¬ ment’s anemic response to an earthquake in Skopje, eties and protecting relief operations designed to keep Yugoslavia. Eagleburger at tiiat time urged die creation of people alive until the chaos ends. Current world condi¬ a foreign disaster coordination office. Since tiien, diplo¬ tions have not presented to American policy makers the mats have admired die offices ability to move quickly, kind of clear rationale and tangible threat posed by Nazi tiianks to a provision granted by Congress many years ago Germany, Imperial Japan or die Soviet Union. which permits OFDA to suspend much of die Byzantine federal contracting law. Witiiin hours after a disaster, The Politics of Disaster Response OFDA can dispatch planes with tangible evidence of Every foreign disaster involves domestic politics. As American support for victims. From its five warehouses soon as U.S. involvement looms, die pollsters, members of around the world, the agency sends out commodities such Congress and the news media express their views. as blankets, water purification equipment, or shelter Sometimes etimic constituencies living in die United material. It also dispatches search and rescue teams to States play a significant role, given that virtually eveiy find victims in rubble after an earthquake or bombing. nation on earth has a diaspora in America. Invariably, they Since the end of the Cold War, most U.S. emergency regard die disaster in dieir homeland as of preeminent assistance has shifted away from natural disasters such as

18 FOREIGN SERVICE ] O U RN AL/D EC EMBER 1998 Focus

earthquakes, floods, and storms to Complex humanitarian UNICEF as mechanisms to provide countries in conflict — to what are relief aid, rather than indigenous gov¬ called complex humanitarian emer¬ emergencies keep ernments, which are sometimes not gencies. These crises are characterized well organized for a major disaster by the collapse of public services and growing in number: response or which are themselves political authority, a rise in death rates combatants with biases as to whom from starvation and epidemics, mass this year there should receive aid. population movements, widespread My favorite story of this sort of con¬ violence and atrocities, and macroeco¬ have been 25. flict over means to a common end took nomic collapse. place during the Khartoum floods of The number of these complex December 1988. Julia Taft, then direc¬ emergencies has risen geometrically since the end of tor of OFDA, sent the celebrated disaster expert Fred the cold war. An OFDA study showed an average of Cuny — since murdered in Chechnya — to design the five complex emergencies annually between 1978 and relief effort. The highest priority was providing decent 1985; in 1989, there were 14, while this year there have drinking water for poor people, many of whom were dis¬ been perhaps 25. There has been an increase in total placed from the war in southern Sudan and lived on the U.S. disaster assistance from $300 million in 1989 to outskirts of die city. Instead of installing an expensive water $1.3 billion in 1994. purification and distribution system, which would likely have collapsed when OFDA withdrew later in die emer¬ Once a decision has been made to supply emer¬ gency, Fred repaired flood damage to existing wells and gency aid, the frontline U.S. agencies — OFDA dug more, and bought 300 donkeys and 300 metal drums. and Food for Peace — try to make sure that aid He dien hired 300 entrepreneurial poor people, taught goes where it is truly needed. Both offices assiduously diem how to maintain die well pumps, and helped them resist attempts to use these resources without first getting start a water delivery business from which people would a reliable needs assessment, and for good reason. In the pay pennies a day to get clean water delivered to their past, excessive resources have sometimes been used homes. The system was a marked improvement over what where the needs were seriously exaggerated or not had existed before the flood. It operated efficiently for four directed to where many people were dying invisibly. The years until the central government bulldozed the housing assessment may come from OFDA itself, from the U.S. around the city in an effort to disperse die displaced people embassy or USAID team, or from tire host country. This into die desert because it doubted their loyalty. While diis assessment should enumerate the size of the population project was not visible, it cost very little, improved the water suffering, the geographic distribution of the victims, and distribution among the urban poor, was sustainable over the nature and quantity of the assistance required. time, and had the support of the public being served. Assessments are done to isolate political considerations, ethnic biases, exaggerated needs described by the media, When Policies Clash or otherwise unreported needs so that the humanitarian The mission of OFDA and FFP would seem at first reality is clear. glance to be unobjectionable, if not admirable: save lives Often, visible commodities are not needed; instead, the and reduce human suffering. However, when rigorously infusion of small amounts of cash, expertise and manager¬ applied, die pursuit of these goals has sometimes led to ial skill to sustain indigenous organizations working conflicts witii Congress, the media and public opinion, towards rehabilitation and reconstruction can make a huge and with the diplomatic and security interests of the difference. This sort of invisible aid sometimes fails to ful¬ United States. While competition among diverse U.S. fill understandable diplomatic demands for a public dis¬ interests is nothing new, the addition of die humanitarian play of concern in the form of tangible relief commodities. imperative has sometimes strained generally good rela¬ The United States has long preferred the Red Cross, tions between State and OFDA and FFP. It is not diat NGOs and U.N. humanitarian agencies such as American foreign policy is intrinsically at odds witii the

DECEMBER 1998/FOREIGN SERVICE JOURNAL 19 Focus

humanitarian norms of disaster Famine relief to consistent with each other. Our Turkish response — it is only that our foreign ally would have been unhappy if a mil¬ policy’s central purpose usually is the North Korea has been lion Iraqi Kurds remained in the moun¬ protection of American interests tains along their border for a long time, broadly defined. That sometimes an extraordinary given that Turkey was fighting an inter¬ means using disaster relief to send a nal war with Turkish Kurds who wished diplomatic message where it is not headache for the U.S. to secede. At the same time, if the technically needed to save lives, thus United States had left the Kurds vul¬ denying it to an emergency with a nerable to Saddam Hussein’s brutality, more urgent humanitarian need but which may not be on it would have strengthened his political position and sent the geostrategic map. a dangerous message to Iraqi opposition groups: If you This conflict arises most sharply when the disaster is in are in trouble, the U.S. will abandon you. Hussein had a country considered hostile to the United States, such as massacred between 100,000 and 150,000 Kurds in the Ethiopia under the Mengistu junta or Cuba under late 1980s because he saw' them as sympathetic to Iran Castro. Would providing disaster relief to an unfriendly during the Iran-Iraq War. The moral imperative played a state be likely to extend the life of a repugnant regime? If powerful if muted role in the issue, as many of the Kurds die disaster is visible enough in die news media, the num¬ would have died of starvation, exposure, or disease if they ber of lives being lost great enough, and the pressure had stayed up in the mountains in those refugee camps from Congress and the public intense enough, foreign for very long. policy considerations will be set aside and disaster relief will be provided. That happened during the Ethiopian The North Korean Quandary famine of the early 1980s. In other circumstances, politics and diplomacy have sometimes collided with the humanitarian imperative in Kurds in the Lurch very visible ways. The North Korean famine relief effort Quite often, however, humanitarian goals and otiier has been perhaps the most politically and diplomatically U.S. policy goals can be achieved at the same time. That complex in the post-Cold War era. occurred in 1991, in northern Iraq. The problem: what to The famine began in 1992 when Soviet and Chinese do about one million Kurds who had sought refuge from agricultural subsidies were precipitously cut off as the Iraqi government attacks in the mountains along the Eastern bloc economic system collapsed. These subsidies Iraqi-Turldsh border after the Gulf War? The military’s had filled the one-million-metric-ton amiual deficit European Command had an operations plan which between needs and production from North Korea agri¬ sought to keep the Kurds supplied with necessities for an culture. The early stages of the famine were almost entire¬ unlimited period of time. OFDA had sent a team to work ly invisible to the outside world, perhaps even to the lead¬ with U.S. forces. The OFDA team and military field ership in North Korea. Bad news is not easily communi¬ commanders designed a plan to encourage the Kurds to cated up die bureaucratic structure in a totalitarian come out of the mountains back to their villages, while regime. By 1995, the one-million-ton deficit had grown to the U.S. and allied forces guaranteed safe passage, and two million and exacerbated the severity of the crisis. the U.S. Air Force provided air cover to avoid another The North Korean regime has been appealing for Iraqi assault on the Kurds in the future. Deputy food in every way it could since the fall of 1995 after seri¬ Secretary Eagleburger took me to see the Vice Chairman ous flooding, which they blamed for their food shortages. of the Joint Chiefs, Admiral David Jeremiah, to get his The United Nations harvest reports estimate that the nat¬ support for the OFDA team to design this plan which tire ural disasters which have plagued the country every year military would help execute. The Pentagon agreed to the since 1995 are responsible for only 15-20 percent of the OFDA strategy. food deficit, the rest being attributable to the Norths In this case, the diplomatic interests of the United Stalinist agricultural policies. The regime apparently States and the humanitarian imperative were very much believes that if it initiates any economic or agricultural

20 FOREIGN SERVICE JOURNAL/DECEMBER 1998 Focus

reforms, its system will collapse like Nation-building efforts have been thus far remarkably those of Eastern Europe and the successful, each provocative act by Soviet Union. The North Korean lead¬ is on its face the North Korean government has ership has also refused humanitarian made opposition in Congress agencies die level of access to benefi¬ an arrogant stronger and bolder. The regimes ciaries and accountability (for donated irresponsible behavior can only be food aid and medication) required of presumption. explained in one way: Its own central every other relief effort in the world. objective of survival always takes There have been countless conflicts precedence over all others, including between competing interests in trying to stop the famine. saving its population from mass starvation. Bureaucratic wars have been fought widiin and between Now we have reports from Doctors without Borders, NGOs and within U.N. humanitarian agencies. Every a European-based NGO, which has done work in North group has reluctantiy suspended the accepted standards Korea for several years and recently withdrew, that not for the monitoring and distribution of aid because the only is the famine far worse than they had suspected but North Korean government will not allow them. While the that food aid is being diverted to the party elites. U.S. executive branch was slow in approving substantial Probably, though, some of die food aid targeted to school food aid until 1997, that July the president announced a children under the age of seven is reaching diose in need. major pledge. This year, the U.S. increased its pledge to 300,000 tons. These pledges have provoked ongoing Food Aid Held Hostage opposition in Congress because many members fear the I recently visited the Chinese border with North food is being diverted to the military. This has meant Korea to interview food refugees escaping the famine repeated congressional battles over prohibitions on aid. and reached two unexpected conclusions. First, many of the North Korean people are well aware that the United Administration policy earlier last year had been States, China and South Korea are supplying food aid, yet to use food aid as an inducement to the North diey are not getting it dirough die traditional Communist Koreans to negotiate more seriously at the distributton system. They angrily blame their govern¬ four-party talks designed to get the North and South ment for this. Second, enough diverted food aid is mak¬ talking with each other directly (with the U.S. and ing its way onto the local farmers’ markets — which is die China). If they cooperated they would get more food; only way people in the cities are eating — to depress if not, they wouldn’t. NGOs and religious groups prices enough that many more people can afford to buy formed a coalition to change this policy, arguing no or barter for it. Thus, the humanitarian imperative is indi¬ political or diplomatic conditions should be attached rectly being served by making food available to die peo¬ to food aid in a famine, given the number of lives at ple and the regime’s popular support base is eroding risk. While the administration has changed its position because of public anger over the corruption in the distri¬ on conditionality and separated the negotiations from bution system. famine relief, the North Koreans have not. They con¬ Our negotiating position witii the North Koreans is sistently connect food aid to their willingness to talk: properly focused on missile launches, plutonium produc¬ They will only talk if donors pledge food first — a form tion and otiier security issues, not the famine. It is not of reverse conditionality. likely the administration will cancel the 300,000 tons of Congressional opposition to food aid has grown as food it pledged in September even if it is being misused, North Korea has pursued more and more provocative because it is the food aid that has brought Pyongyang to policies. It has been the Korean-American community, the negotiating table. And yet Congress may eventually particularly church groups and NGOs working in force the negotiating hand of State on the matter. North Korea, that has led the effort to press the admin¬ Without the present food aid as an inducement, the istration to pledge food aid in the first place and then existing negotiating framework might well collapse. to protect it from congressional prohibitions. While The constraints on the North Korean nuclear program

DECEMBER 1998/FOREIGN SERVICE JOURNAL 21 Focus

would then be removed, which might Somalia has had mechanism for gathering international sup¬ increase the risk of conflict on the port, great power leadership is absolutely peninsula. Yet humanitarian agencies no national essential for success. Intervention, no matter would no doubt prefer more diplomat¬ how well intentioned, is full of pitfalls and ic pressure on die North Koreans to government since should only occur when tire number of lives at allow them greater access to the needy risk is so great or tire human rights abuses are and greater accountability for food aid. 1993, yet Somalis so egregious that tire crisis demands outside What we have then is a complex of con¬ intervention. flicting objectives — working simulta¬ are surviving. Nation-building can be an arrogant pre¬ neously to complicate both the broad¬ sumption, especially when based on a tri- er diplomacy and the humanitarian umphalist Western worldview. We do not relief program. Meanwhile, the famine continues. know how to build or rebuild nations, and should be mod¬ est in our objectives after conflicts are over; In cases where Conflict Without End the political and security situation is directly responsible for All policy disputes over disaster relief issues involve die high death rates, as in Bosnia, Kosovo and Rwanda, then a same fundamental questions: First, will the moral imperative combination of carefully designed but robvrst military, polit¬ play a large or more peripheral role hi die formulation of ical and diplomatic interventions may be needed to end the American foreign policy, compared to more hard-nosed defi¬ atrocities and create conditions for peace. At the very least, nitions of national interest? Second, should the United States in all post-conflict situations we should provide enough rely' on international institutions to carry out disaster respons¬ assistance to stop the high death rates from hunger and dis¬ es rather than bilateral relief programs? The realist school of ease and return the society' through rehabilitative programs foreign policy rigorously' applied would subordinate U.S. gov¬ to a minimum level of self-sufficiency. ernment disaster relief to a narrower definition of vital nation¬ We cannot create a stable government unless there is al interests. Military intervention under this policy would only local will to do so. If that will exists, we should support the be used as an option if the disaster left: unchecked would effort. Surprising as it may be, people can on occasion cope adversely affect those interests. without a government. Somalia has had no national govern¬ A more Wilsonian framework for determining when to ment since 1991, and y'et Somalis have been able to survive intervene insists on internationally sanctioned intervention once the agricultural system was restored and the famine through the United Nations whenever human rights are ended in 1993. abused, lives are at risk, or where there is terrible human suf¬ fering as a result of a disaster, regardless of the cause. This Ethical Dilemmas same school of robust interventionism has invented the term The politics of disaster response has grown more complex, “nation-building” to describe the post-crisis phase of inter¬ and the ethical dilemmas more numerous, in our post-Cold vention, when the international community seeks to recon¬ War world. At the very least, it requires the diplomatic and struct a failed state. security interests of the U.S. government on one hand and Both schools — hard realism and lofty Wilsonian interna¬ the humanitarian imperative of OFDA and its non-govem- tionalism — get some things wrong and some tilings right. mental allies to understand one another's perspective — and International intervention through the United Nations, partic¬ to understand, too, the congressional, media and interest ularly on the peacekeeping and diplomatic side, has been an group pressures inherent in a democratic polity'. But human¬ abysmal failure. The U.N. lacks tire centralized, disciplined mil¬ itarian intervention is so complex and difficult to carry out itary force and diplomatic clout of the great powers, particu¬ successfully that the United States will only' engage in it spar¬ larly the United States, without which intervention in complex ingly, with sometimes contradictory motivations. The best we emergencies will fail. While the sanction of the Security can hope for is to continue to manage our conflicting policy Council or some other regional institution, such as the motivations, aware of the risks and with an understanding of Organization of American States, is an important and useful the ethical consequences of our decisions. ■

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 23 Focus ON H UMANITARIAN INTERVENTION

DECISION TO INTERVENE: How THE WAR IN BOSNIA ENDED

FOR THE U.S., FRUSTRATION OVER THE BOSNIAN IMPASSE CAME TO A HEAD IN 1995 — THE INSIDE STORY

BY IVO H. DAALDER

or over four year's following the breakup of Yugoslavia and the onset of war, first in Croatia and then in Bosnia, die United States refused to take the lead in trying to end the violence and conflict. While many have written eloquendy and passionately to explain Washingtons - and the Wests - failure to stop the ethnic cleansing, the concentration camps, and the massacres of hundreds of thousands of civilians, few have examined why, in die summer of 1995, die United States finally did take on a leadership role to end die war in Bosnia. One notable exception is Richard Holbrooke, who recounts his own crucial contribution to the negotiation of die Dayton Peace Accords in his book To End a War. But Holbrooke s account leaves unclear what, in addition to

24 FOREIGN SERVICE J OU RN Ah! DEC EMBER I99S Focus

his own brokering role, accounts for By 1995, the participants, it is now possible to the turnaround in U.S. policy, includ¬ begin filling in some of the critical ing the critical decision to take a lead¬ administration’s details on how the administration ership role in trying to end the war. It arrived at its decision in August 1995. was on the basis of that decision that Bosnia strategy had Though few realized it at the Holbrooke subsequently undertook beginning of the year, 1995 would his negotiating effort. lost all credibility. prove to be the decisive year for What, then, explains the Clinton Bosnia’s future. That shift stemmed administrations decision in August from a decision, reached by the 1995 at long last to intervene decisively in Bosnia? Bosnian Serb leadership in early March, that the fourth Why, when numerous previous attempts to get year of the war would be its last. The Bosnian Serb involved in Bosnia were half-hearted in execution and objective was clear: to conclude the war before the ended in failure? The answer is complex, involving onset of die next winter. The strategy was simple, even explanations at two different levels. First, at the policy if its execution was brazen. First, a large-scale attack on level, the day-to-day crisis management approach that the three eastern Muslim enclaves of Srebrenica, Zepa, had characterized the Clinton administrations Bosnia and Gorazde — each an international “safe” area light¬ strategy had lost virtually all credibility. It was clear that ly protected by a token U.N. presence — would swift¬ events on the ground and decisions in allied capitals as ly capture these Muslim outposts in Serb-controlled well as on Capitol Hill were forcing the administration Bosnian territory. Next, attention would shift to Bihac — to seek an alternative to muddling through. a fourth, isolated enclave in northwestern Bosnia — Second, at the level of the policy-making process, which would be taken over with assistance from the president encouraged his national security adviser Croatian Serb forces. Finally, with the Muslims on the and staff to develop a far-reaching and integrated strat¬ run, Sarajevo would become the grand prize, and its egy for Bosnia that abandoned the incremental capture by the fall would effectively conclude the war. approach of past efforts. This process produced agree¬ ment on a bold new strategy designed to bring the Betrayal in Srebrenica Bosnia issue to a head in 1995, before presidential elec¬ As the Bosnian Serb strategy unfolded through the tion politics would have a chance to intervene and spring and into summer, the 20,000-strong U.N. instill a tendency to avoid the kind of risk-taking behav¬ Protection Force in Bosnia confronted a fateful dilem¬ ior necessary to resolve the Bosnia issue. ma. UNPROFOR could actively oppose the Bosnian Serb effort and side with the Muslim victims of the war. The Breaking Point But this would entail sacrificing the evenhandedness Although the evolution of America’s Bosnia policy, that is the hallmark of U.N. peacekeeping. including the predicament of the Clinton administra¬ Alternatively, UNPROFOR could preserve its much- tion in the summer of 1995, is relatively well known, vaunted neutrality and limit its role to protecting the details of the administration’s policy-making humanitarian relief supplies and agencies. But this process during this period are not. Based on new exten¬ would effectively leave the Muslims to face the sive research, including numerous interviews with key Bosnian Serb assault virtually unprotected. Washington’s preference was clear. It repeatedly Ivo H. Daalder is a visiting fellow at the Brookings demanded that the U.N. forces either stop the latest Institution, on leave from the Maryland School of Bosnian Serb assault or, at the very least, agree to Public Affairs. He was director of European affairs on NATO air strikes to punish the Serb forces and protect the National Security Council staff from 1995 to 1997. the “safe” areas. Most European allies had a different This a rticle draws on his forthcomin g book, Getting to Mew. Unlike the United States, many Europeans had Dayton: The Making of America’s Bosnia Policy in placed their troops at risk by participating in the U.N. 1995 (Brookings, 1999). operation on the understanding that their involvement

DECEMBER 1998/FOREIGN SERVICE JOURNAL 25 Focus

would be limited to a stricdy humani¬ Western inaction Zepa had earlier fallen to the tarian mandate. When limited air Bosnian Serbs). The allies agreed strikes in late May 1995 resulted in seemed to give a that an attack on, or even a threat to, nearly 400 peacekeepers being taken Gorazde would be met with a “sub- hostage, a consensus quickly emerged green light to staixtial and decisive” air campaign. within the U.N. and among the troop- “There’ll be no more ‘pinprick’ contributing countries that, however ethnic cleansing. strikes,” Secretary of State Warren limited, NATO air strikes would do Christopher declared. A few days more harm than good. The United later, the North Atlantic Council Nations force would return to “traditional peacekeep¬ worked out the final operational details of the air cam¬ ing principles.” This sent the not-so-subtle message to paign and passed the decision to NATO’s military com¬ the Bosnian Serbs drat they were now free to pursue manders on when to conduct the strikes. their preferred strategy. That strategy, known as “ethnic cleansing,” involved using murder, rape, expulsion and Breaking Out of the Box imprisonment on a large scale to drive Muslims and By the end of July the United States and its allies Croats from territory the Bosnian Serbs wished to confronted a situation that required concerted action. claim. The strategy of muddling through that had character¬ The Bosnian Serbs implemented their strategy with ized U.S. policy since the beginning of the conflict horrifying results. In July, Serb forces turned their clearly was no longer viable. The president made clear focus to Srebrenica, a small village near the eastern to his senior advisers that he wanted to get out of the border with Serbia swollen with some 60,000 Muslim box in which U.S. policy found itself. This box had been refugees. It was there that the dien-U.N. commander, created by an unworkable diplomatic strategy of offer¬ French General Philippe Morillon, had two years earli¬ ing ever greater concessions to Serb President er taken the U.N.’s strongest stand, declaring at the Slobodan Milosevic just to get the Bosnian Serbs to the time: “You are now under U.N. protection of the table; by the long-standing refusal to put U.S. tioops on United Nations.... I will never abandon you.” Despite the ground; by allied resistance to using force as long as the U.N. flag flying over the enclave, die Bosnian Serb their troops could be taken hostage; by a U.N. com¬ assault in July 1995 met no U.N. resistance either on mand that insisted on “traditional peacekeeping princi¬ the ground or from the air. Within 10 days, tens of ples” even though a war was raging; and by a U.S. thousands of Muslim refugees streamed into the Congress bent on taking the moral high ground by uni¬ Muslim-controlled city of Tuzla. Missing from the laterally lifting the arms embargo on the Bosnian gov¬ stream of refugees were more than 7,000 men of all ernment without, however, taking responsibility for the ages, who had been executed in cold blood - mass mur¬ consequences of doing so. der on a scale not witnessed in Europe since the end of Yet, the Clinton administration had been here World War II. before. In early 1993 it rejected the Vance-Owen Peace Plan; in May 1993 it tried to sell a policy to lift the arms “No More Pinpricks” embargo and conduct air strikes while the Muslims Srebrenica was the West’s greatest shame, with each were being armed; and in 1994 it had sought repeated¬ of the 7,079 lives lost underscoring the failure to act in ly to convince the allies to support strategic air strikes. time to avert this single most genocidal act of the Each time, the new policy was rejected or shelved, and Bosnian wax; Guilt led senior representatives of the an incremental, ciisis management approach was once United States and its key allies to agree in London a few again substituted for a viable approach to end the war. days later that NATO would make a strong stand at Why was the summer of 1995 any different? Why the Gorazde by defending the town’s civilian population. emergence of a firm consensus on a conceited strategy (This decision was later extended to the three other now when it had eluded the Clinton administration for remaining “safe” areas of Bihac, Sarajevo, and Tuzla; over two years? The answer, in part, lies in the horrors

26 FOREIGN SERVICE ] O V RN AL/D E C E M B ER 1998 Focus

witnessed by Srebrenica — a sense Srebrenica, would cost them dearly. For nearly a that this time the Bosnian Serbs had year, the United States and its Contact gone too far. That certainly proved to the West’s greatest Group partners (Britain, France, be the case in the Pentagon, where Germany, and Russia) had sought to Defense Secretary William Perry and shame, spurred pressure the Bosnian Serb leadership JCS Chairman John Shalikashvili took headquartered in Pale into agreeing the lead in pushing for the land of vig¬ NATO action. to commence serious negotiations by orous air campaign that was finally convincing Milosevic to cut off eco¬ agreed to in London. The real reason, nomic and, especially, military assis¬ however, was the palpable sense that Bosnia was the tance to the Bosnian Serbs. Despite being offered vari¬ cancer eating away at American foreign policy, in the ous incentives (including direct negotiations with the words of Anthony Lake, Clintons national security United States and the suspension of U.N. economic adviser. U.S. credibility abroad was being undermined sanctions), Milosevic never followed through. perceptibly by what was happening in Bosnia, and by This left military' pressure — the threat or actual use Americas and NATO’s failure to end it. With presiden¬ of force against the Bosnian Serbs — as the only real tial elections a little over a year away, die White House lever to convince Pale that a diplomatic solution was in in particular felt the need to find a way out. its interests. Yet, more than two years of hying to con¬ It was a way out diat the president demanded from vince the NATO allies of this fact had led nowhere. At his foreign policy team in June 1995. Spearheaded by each and every turn, London, Paris, and other allies the National Security Council staff and strongly sup¬ had resisted the kind of forceful measures that were ported by Madeleine Albright (then the U.S. ambas¬ required to make a real impact on the Bosnian Serb sador to the United Nations), Americas first coherent leadership. In their informal discussions, Vershbow and Bosnia strategy was developed. This strategy for the Drew suggested that the only way to overcome this first time matched force and diplomacy in a way that resistance was to equalize the risks between the United would break die policy impasse that had strangled States on the one hand and those allies with troops on Washington for so long. It was debated by the presi¬ the ground on the other. This could be achieved either dent and his senior advisers over the course of three by deploying U.S. forces alongside European troops or days in August and, when accepted by Clinton, became forcing the withdrawal of the U.N. force. Since the the basis for the diplomatic triumph in Dayton three president had consistently ruled out deploying months later. American ground forces to Bosnia except to help enforce a peace agreement, the only way significant Lake Pushes the Process military pressure could be brought to bear on the Given the worsening atrocities in Bosnia and die Bosnian Serbs would be after UNPROFOR had been growing discontent with U.S. policy, how did the withdrawn. Lake agreed with this assessment and pro¬ administration move from its paralysis of 1994 to its posed that his staff begin to work on a “post-withdraw¬ construcdve role in late 1995? In May ’95, Tony Lake al” strategy — the steps that the U.S. should take once first began to consider how U.S. policy toward Bosnia UNPROFOR was gone. might be changed in a more productive direction. He began to meet informally with key people on his NSC UNPROFOR as Obstacle staff (including his deputy, Sandy Berger, and his chief The NSC’s conclusion that the U.N. force was part Bosnia aides, Sandy Vershbow and Nelson Drew) to of the problem in Bosnia rather than part of the solu¬ consider how the United States could help to change tion was shared by Madeleine Albright, long the the tide of war. Clinton administration’s chief hawk on Bosnia. In June It had long been clear that progress toward a negoti- 1995, she once again made her case, presenting ated settlement was possible only if the Bosnian Serbs Clinton with a passionately argued memorandum urg¬ understood that not achieving a diplomatic solution ing a new push for air strikes in order to get the

DECEMBER 1998/FOREIGN SERVICE JOURNAL 27 Focus

Bosnian Serbs to the table. Albrights In 1995, Tony Lake On a Saturday morning in late June, memo noted that if air strikes required Lake and his chief NSC aides gathered in the withdrawal of UNPROFOR, then so broke with the his West Wing office for an intensive, four- be it. The president agreed with the hour-long discussion on what to do in thrust of her argument, having himself consensus on Bosnia Bosnia. A consensus soon emerged on come to see UNPROFOR as posing an three key aspects of a workable strategy. obstacle to a solution for Bosnia. As that had led to First, UNPROFOR would have to go. In Clinton well knew, the U.N. force its stead would come eitiier a new NATO accounted for allied opposition not only years of inaction. force deployed to enforce die terms of a to air strikes but also to lifting the anus peace agreement or the kind of concerted embargo on Bosnia that had effectively military action by the United States and deprived the government of exerting its right to self-defense. NATO that the U.N.’s presence had so far prevented. Second, However, just as the White House and Albright reached if a deal was to be struck between tire parties, it was clear that the conclusion that UNPROFOR might have to go sooner such an agreement could not fulfill all demands for justice. A rather than later, senior officials in die State and Defense diplomatic solution that reversed every Bosnian Serb gain Departments became increasingly worried about the conse¬ simply was not possible. Third, the success of a last-ditch quences of a U.N. withdrawal from Bosnia. Specifically, drey effort to get a political deal would depend crucially on bring¬ were concerned that UNPROFOR's departure would ing the threat of significant force to bear on die parties. The require die deployment of up to 25,000 American troops to last diree years had demonstrated that without the prospect assist in the withdrawal — as the administration had com¬ of die decisive use of force, the parties would remain intran¬ mitted in December 1994. Holbrooke recounts that he was sigent and their demands maximalist. “stunned” and that Christopher was “amazed” by the degree to which the U.S. appeared to be committed to this “bold Lake asked Vershbow to draft a strategy paper on the and dangerous” plan. Rather than focusing on how the situ¬ basis of this discussion. The national security advis¬ ation in Bosnia could be resolved, State and Defense urged er also told the president about the direction of his the United States to do nothing that would force the allies to thinking. He specifically asked Clinton whether he should decide tiiat the time for UNPROFOR’s departure had come. proceed along this path with the knowledge that in a presi¬ Instead, the emphasis should be on keeping the U.N. force dential election year the United States would have to com¬ in place, even if that meant acceding to allied wishes not to mit significant military force either to enforce an agree¬ conduct any further air strikes to halt Bosnian Serb military ment or to bring about a change in the military balance of advances or to offer further concessions to Milosevic in a power on the ground. Clinton told Lake to go ahead, indi¬ piecemeal effort to get Pale to the negotiating table. cating that the status quo was no longer acceptable. Vershbow’s paper set forth an “endgame strategy” for The Endgame Strategy Bosnia — thus emphasizing both its comprehensive nature Given the State and Defense Departments’ position on and its goal of ending the policy impasse in Washington. this issue, Anthony Lake faced a critical choice. He could The strategy proposed a last-ditch effort to reach a politi¬ accept that there was no consensus for anything beyond con¬ cal solution acceptable to the parties. The outlines of such tinuing a policy of muddling through, or he could forge a new a solution, which was based on the Contact Group plan of strategy and get the president to support a concerted effort 1994, included: recognition of Bosnia’s sovereignty and seriously to tackle the Bosnia issue once and for all. Having territorial integrity within its existing borders; division of for over two years accepted the need for consensus as the Bosnia into two entities — a Bosnian Serb entity and a basis of policy and, as a consequence, failed to move the ball Muslim-Croat federation; entity borders drawn in a com¬ forward, Lake now decided that the time had come to forge pact and defensible manner, with the federation territory his own policy initiative. He was strengthened in this deter¬ accounting for at least 51 percent of the total; and accep¬ mination by the president’s evident desire for a new direction. tance of special parallel relationships between the entities

28 FOREIGN SERVICE J OU RN AL! DEC EMBER 1998 Focus

and neighboring states including the possibility of con¬ leave” — lifting die anus embargo but odierwise leaving ducting a future referendum on the possibility of the federation to its own devices. secession. In order to provide the parties an incentive to accept The Road to Dayton this deal, the strategy also argued for placing American Despite considerable opposition to the endgame military power (preferably alongside allied power, but if strategy from the State Department (with Secretary of necessary alone) in the service of the diplomatic effort. In State Warren Christopher worrying that neither presenting the parties wfth die outlines of a possible diplo¬ Congress nor die allies would accept the military track) matic deal, the Unites States would make clear what price and die Pentagon (where many officials believed that each side would have to pay if negotiations failed. If die Bosnia’s partition would prove the only viable solution), Pale Serbs rejected an agreement, then the United States the president decided in early August to support the would, in the aftermath of UNPROFORs withdrawal, NSC’s position. He sent his national security adviser to insist on lifting the arms embargo on the Bosnian govern¬ persuade key European allies as well as Moscow that ment, provide arms and training to federation forces, and the new U.S. strategy was dieir best bet to resolve the conduct ah' strikes for a transition period in order to Bosnian imbroglio. The president told Lake to make enable die federation to take control of and defend the 51 clear to tire allies that he was committed to this course of percent of Bosnia’s territory tiiat it was allocated under the action — including die military track — even if die peace plan. Conversely, if the Muslims rejected an agree¬ United States was forced to implement it on its own. ment, die United States would adopt a policy of “lift and Lake’s message was well received in allied capitals.

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For tire first time, the United States had demonstrated (Remarkably, the problem drat had stymied NATO deci¬ leadership on this issue, and while many had their sion-makers for so long — the vulnerability of UNPRO- doubts about the wisdom of the military track, all sup¬ FOR troops — was resolved widi relative ease. In ported the strategy in its totality as tire last best hope to December 1995, when implementation of Dayton began, bring the war in Bosnia to an end. most of the UNPROFOR troops changed helmets, and Lakes successful meetings in Europe laid the founda¬ were instandy transformed into IFOR [Implementation tion for Richard Holbrookes subsequent efforts to forge Force] soldiers. Those who didn’t departed Bosnia unop¬ a peace agreement. In this, Holbrooke succeeded bril¬ posed widi NATOs assistance.) liantly. Aided by a very successful Croatian-Bosnian offensive (which reversed Serb territorial gains from the Lessons for Kosovo? 70 percent Pale had held since 1992 to less than 50 per¬ When the crisis in die Serb province of Kosovo erupt¬ cent within a matter of weeks) and a prolonged NATO ed in early 1998, senior U.S. officials from Madeleine bombing campaign that followed the Serb shelling of the Albright and Richard Holbrooke on down looked to the Sarajevo marketplace in late August, the U.S. negotiating success in Bosnia for lessons on how to deal with this new team skillfully exploited the changing military balance of problem. Arguing that the mistakes of Bosnia would not power to conclude the Dayton Peace Accords on be repeated, they called for an early response by the November 21. By the end of 1995, U.S. leadership had international community to die latest atrocities in the transformed Bosnia into a country at relative peace — a Balkans, vigorous U.S. leadership from the get-go, and a peace enforced by 60,000 U.S. and NATO troops. credible tiireat to back up diplomatic efforts to resolve

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the crisis. Each of these was an impor¬ What’s needed in sary. For months, U.S. diplomats have tant element in finally helping to sought to develop an interim agree¬ resolve the Bosnian conundrum in the Kosovo is a vision and ment for the provinces future status, summer of 1995. one that would grant substantial But, as the case of Kosovo demon¬ U.S. determination to autonomy to Kosovo but would post¬ strated, they were not sufficient. For pone a decision on its final status for apart from concerted U.S. leadership make it stick. three years. In essence, this lacks the and linking force and diplomacy in fundamental issue of Kosovo’s possi¬ mutually supportive ways, success in ble independence down the road. Bosnia required a clear sense of how the conflict would Moreover, Washington has given no indication that have to be resolved as well as a willingness to impose it is willing to impose its preferred solution nor that it this vision on the parties. The endgame strategy pro¬ would ensure that any agreement that might emerge vided the vision; Holbrookes diplomatic efforts pro¬ from negotiations would be implemented by deploying duced an agreement based on that strategy. the necessaiy NATO firepower on the ground. Without Here is where Kosovo differs from Bosnia. While U.S. a clear plan for Kosovo’s future status and a risible will¬ leadership and the threat of significant force have ingness to make it stick, policy toward Kosovo is likely marked international efforts to resolve this conflict, there to be little more than the muddling-through approach has been no clear vision of how tire conflict could be that characterized America’s Bosnia policy in its least ended nor any willingness to impose drat vision if neces¬ effective period. I

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 33 Focus ON H UMANITARIAN INTERVENTION

AMERICANS SUPPORT U.N. PEACEKEEPING, WITH CONDITIONS

POLLS SHOW SUPPORT FOR SENDING

U.S. SOLDIERS ON MULTILATERAL

HUMANITARIAN MISSIONS

BY STEVEN KULL AND CLAY RAMSAY

hortly after 18 American soldiers were killed in a Somalia firefight in October 1993, television networks broadcast graphic images of dead GIs being dragged through the streets of Mogadishu. That very evening, public opinion polls taken by ABC and CNN/U.S.A Today showed only 37 and 43 percent of respondents, respectively, said they wanted U.S. troops to withdraw immediately. Three other polls showed similar results. Later that month, NBC found 71 percent support for contributing U.S. troops to U.N. peacekeeping operations. Those results might surprise many in the U.S. foreign policy community, for whom it has become a truism that the American public wants to disengage from the world. More specifically, tire conventional wisdom holds that

34 FOREIGN SERVICE JOURNAL/DECEMBER 1998 Focus

Americans have little appetite for con¬ Americans guessed ing “definitely,” 37 percent saying tributing troops to multilateral peace¬ “probably” and seven percent saying keeping operations, especially if U.S. that the U.S. supplies “in some cases.” troops are killed. American support for peacekeep¬ In fact, a review of national polling 40 percent of peace¬ ing comes from a sense of national data in recent years shows that tiiis interest as well as humanitarian con¬ view of the public is largely a myth. No keeping troops — cerns. An overwhelming 86 percent less now than during the Cold War, a agreed in 1995 diat “The only way for solid majority of U.S. citizens believes 10 times the true figure. the U.S. to not always be the ‘world their country should play an active part policeman’ is to allow the U.N. the in world affairs — including peace¬ means to perform some policing func¬ keeping operations. tions. U.N. peacekeeping is a way we can share the bur¬ den with other countries.” Deciding Factors Arguments that the U.S. does not have interests in far- Polls also show that attitudes toward U.S. participation flung areas of the world do not sit well with Americans. in multilateral peacekeeping may vary a great deal, In the same poll, only 35 percent agreed that “Bosnia is according to a number of factors: far from the U.S. and we have no real interests there. • whether the operation is clearly perceived as multi¬ Therefore it would be wrong to risk the lives of American lateral; troops in a NATO peacekeeping operation in Bosnia.” • whether the U.S. is perceived as contributing more than its fair share; Stopping Genocide • whether the operation is perceived as likely to suc¬ For many Americans, the prospect of genocide cre¬ ceed; ates a particular moral imperative for intervention. • whether the U.S. leadership is acting coherently and Asked in July 1994 how they would feel if a U.N. com¬ decisively; mission determined that genocide was occurring in • whether the operation could mitigate widespread Bosnia or Rwanda, 80 percent said they would favor civilian suffering; and intervention in both cases. • whether die U.S. soldiers involved want to be part of This moral conviction was strong in focus groups. “I the operation. think any reason for deciding whether someone lives or In recent years, polls have consistently found majority dies because of culture or race...or religion is wrong,” said support for the general principle of contributing U.S. a Kalamazoo, Mich., man in spring 1995. “If Bosnia was troops to U.N. peacekeeping operations. Most recently, a an issue of...territory, then maybe you should just let March 1997 Roper Starch poll asked respondents diem fight it out. But...genocide is wrong and when diat whether they would support using U.S. troops “to be part is occurring, something needs to be done to stop it.” of a United Nations peacekeeping force wherever needed.” Even when it does not reach die scale of genocide, the Seventy-nine percent said they would, with 35 percent say- goal of minimizing large-scale civilian suffering is seen as worthwhile by die American public. In PIPA’s April 1995 Steven Kull and Clay Ramsay, are, respectively, the poll, 68 percent agreed: “When innocent civilians are suf¬ director and a senior research fellow of the Program on fering or are being killed, and a U.N. peacekeeping oper¬ International Policy Attitudes, a joint program of the ation is being organized to try to address the problem, in Center for the Study of Policy Attitudes and the Center most cases the U.S. should be willing to contribute some for International Security Studies at the University of troops, whether or not it serves die national interest.” Maryland. Some of the material in this article has been This concern crops up widely in focus groups too. Said adapted from the recently released book Misreading the one Michigan man, “Suffering is the key thing.” Public: The Myth of a New Isolationism, by Steven Kull Support for peacekeeping seems at times to be weak¬ and I.M. Destler published by Brookings. ened by frustration with the performance of peacekeep-

DECEMBER 1998/FOREIGN SERVICE JOURNAL 35 Focus

operations are not very successful because they tend to Contributing U.S. Troops to U.N. Peacekeeping do just enough to keep the situation from getting totally Percentage favoring contributing U.S. troops out of hand, but not enough to really solve the problem.” Despite dissatisfactions, Americans would rather adopt a more muscular approach than give up on peacekeeping. In PIPAs April 1995 poll, 74 percent felt that the U.N. should “strengthen its reputation for following through on its threats to use military force even if this means some¬ times going into serious combat.” When asked what they would like to see tire U.N. peacekeeping forces in Bosnia do, 50 percent said diat they would like to see them “get tougher,” while only 29 percent said “withdraw” (13 per¬ NBC 10/93 PIPA 2/94 CCFR10/94 PIPA4/95 PIPA9/96 cent said “stay tire course they are on”). ABC 11/93 PIPA 7/94 PIPA 4/95 PIPA 6/96 ROPER STARCH 3/97 I | If U.S. votes in favor of operation Q In some cases ^ In general Unilateral Vs. Multilateral While most Americans support U.N. peacekeeping ing operations. In April 1995, when the U.N. operation in in general, their support for a particular operation Bosnia was not going well, an overwhelming 79 percent depends a great deal on how they perceive it. If a num¬ agreed in a PIPA poll that: “Overall, U.N. peacekeeping ber of key variables are pointing in the right direction,

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Americans will support U.S. partici¬ Americans want based on misperceptions. When pation. respondents were asked to guess One good example: whether oper¬ peacekeepers, when what percentage of the troops in U.N. ations are multilateral. As polls con¬ peacekeeping were in fact American, sistently show, questions that clearly faced with opposition, the median response was 40 percent spell out that the U.S. would be con¬ — ten times the actual percentage of tributing to a U.N. operation general¬ to hit back hard — four percent at that time (the U.S. ly elicit a majority support for partici¬ share has generally been at this level pation. Questions that simply ask not to pidl out. and has never been above 10 per¬ about sending U.S. troops to a trou¬ cent). When asked what the U.S. bled area, apparently giving the should contribute, the median pre¬ impression that the U.S. would be or is the sole con¬ ferred level was 20 percent. tributor, usually elicit majority opposition. It appears that such misperceptions have sup¬ Support for peacekeeping drops when the public pressed support for contributing troops to the opera¬ believes that the U.S. generally contributes more than tion in Bosnia. Americans have consistently overesti¬ its fair share to the effort. In PIPAs April 1995 poll, 60 mated the U.S. contribution. Louis Harris found a percent said that “the number of troops the U.S. is mean estimate of 45 percent in October 1997 and PIPA presently contributing to U.N. peacekeeping is more found a median estimate of 50 percent in February- than its fair share.” However, this view was largely March 1998. In fact, for most of this period the U.S. ^ FULLY FURNISHED LUXURY APARTMENT LIVING

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contributed 25 percent or less. Interestingly, in a June American lives. They were told: 1996 PIPA poll, among those who favored contributing “Imagine that in the course of carrying out this opera¬ some troops, the median preference was 25 percent — tion over the next year, there is an incident in which 50 close to the actual U.S. contribution. American soldiers die fighting in a confrontation with a rogue band that resists die peace agreement. But overall, Chances for Success the operation succeeds in maintaining the peace and Whether or not a peacekeeping operation is believed to stopping edmic cleansing.” have a strong chance of success makes a great difference in In this case, 60 percent said they would feel that in how the public responds to it. When respondents are asked to contributing troops the U.S. “had done die right thing,” assume that an operation will succeed, support for contribut¬ while 32 percent said diey would feel that die U.S. “had ing U.S. troops nearly always becomes a strong majority. made a mistake.” This seems to have affected attitudes toward Bosnian intervention. Support for policing a peace agreement, Is U.S. Leadership Decisive? fairly high in 1993, dropped sharply by spring 1995, when Americans tend to be more supportive of participat¬ the operation was perceived as going poorly, as being too ing in U.N. operations when the president has made a passive and having low likelihood of success. clear decision to contribute troops and has gotten con¬ Nonetheless, in November 1995, when PIPA asked gressional approval to do so. Often, questions about respondents to consider a scenario in which the U.S. potential peacekeeping actions have been asked when contributes troops and the operation succeeds, a fairly policy-makers have either not yet made a decision, or strong majority expressed support even when they when the leadership is divided between a president who were asked to assume that the operation would cost has decided to move forward and Congress, which has

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38 FOREIGN SERVICE J OU RN AL/DEC EM B ER 1998 READING THE FINE PRINT: HOW THE FOREIGN SERVICE FARED IN RECENT LEGISLATION

Governing Board hile attention was understandably were being withheld because of the lack of President: Daniel P. Geisler State Vice President: vacant fixed on the larger portions of the accompanying funds. Legislation allows the con¬ USAID Vice President: Frank Miller FY1 999 Omnibus Appropriations leg¬ ferring of such awards without requiring an USIA Vice President: J. Riley Sever CS Vice President: Charles Kesfenbaum islation (PL 105-277) — such as the reorgani¬ accompanying cash payment. FAS Vice President: Maggie Dowling zation of the foreign affairs agencies, the fund¬ 3. Low Ranking: Requires the secretary of State Retiree Vice President: Edward Dillery Secretary: Aurelius Fernandez ing levels in the appropriations, and the to develop and implement a plan to identify Treasurer: Thomas Boyatt amount that would be devoted to anti-terror¬ Foreign Service personnel who have been State Representatives: Natalie Brown, Marilyn Bruno, Michael Corbett, ism — many other issues affecting the quality ranked in the bottom five percent of their class Christopher Sandrolini, Greg Stanton of life and the work environment of the for any two of the previous five years, and rec¬ USAID Representative: James Dempsey ommend such personnel for separation from the US/A Representative: Susan Crais Hovanec Foreign Service were also passed in this and Retiree Representatives: Garber Davidson, other legislation. (For coverage of more gen¬ Foreign Service. Willard DePree, William Harrop, Clyde Taylor 4. Retirement benefits for involuntary separation: FAS Representative: Evans Browne eral foreign affairs issues, see page 1 1.) CS Representative: vacant In the Omnibus Bill Corrects drafting oversights in previous law so Staff that those involuntarily separated cannot receive Executive Director: Susan Reardon 1. Para-consular officers: To help ease the Business Department workload of consular officers, U.S. citizen both immediate retirement benefits and sever¬ Controller: David McEvoy ance-type payments. Accounting Assistant: Jenifer O'Neal employees abroad who are not consular offi¬ Labor Management cers are permitted to perform additional con¬ 5. Separation of convicted felons from the ser¬ General Counsel: Sharon Papp vice: Authorizes the secretary to separate from Staff Attorney: Colleen Fallon sular functions including issuance of visas, Coordinator: Richard C. Scissors adjudication of passport applications, adjudi¬ the Foreign Service those individuals who have Specialist: James Yorke been convicted of a crime for which a prison USIA Labor Relations Specialist: Carol Lutz cation of nationality and the issuance of citi¬ Labor Management Attorneys: zenship documentation after going through sentence exceeds one year. Those individuals Suzanne Brennan, Tanisha Cole designated for separation are excluded from Grievance Attorneys: Henry Sizer, prescribed training. Zlatana Badrich 2. Presidential Award: A number of presidential Law Clerks: Peter Hutchinson, continued on page 2 Melody Fowler-Green awards for meritorious or distinguished service Office Managers: Rita Cohen, Karen Batchelder Member Services Director: Janet Hedrick Represenfaf/ve.’Yolanda Odunsi • AFSA Dateline • Administrative Assistant: Thomasina Johnson Retiree Liaison: Ward Thompson •Through a generous $12,000 dona¬ Africa, Asia, and the Near East. His most Professional Programs tion, Howard Kavaler established a perpet¬ recent overseas assignment was as Deputy Professional Issues Coordinator: Richard S. Thompson ual scholarship in his late wife's name. The USAID Mission Director in Tanzania. Evans Congressional Affairs Director: Ken Nakamura Prabhi G. Kavaler Memorial Scholarship Browne, the representative for FAS, has had Communications Coordinator: Kristina Kreamer Scholarship Administrator: Lori Dec will be awarded to a needy Foreign Service five overseas postings in the last 14 years. He Corporate Relations: Mark Lore child to meet college expenses beginning is currently the Section 108/Local Currency Internet Addresses: Program Manager. Welcome aboard. [email protected] (Association) next September under AFSA's Financial Aid [email protected] (President) Program. Mrs. Kavaler perished in the [email protected] (FSJ) August 7 bombing of the U.S. embassy in • AFSA's newest staff member is Jung AFSA Headquarters: (202) 338-4045 Nairobi, Kenya. Wook Lee, a fall intern who is working in FAX: (202) 338-6820 State Department Office:(202) 647-8160 Corporate Relations. A graduate of the FAX: (202)647-0265 •Two new members have joined the AFSA University of N.C. with a B.A. in English, she is USAID Office: (202) 712-1941 FAX: (202) 216-3710 Board. James R. Dempsey, who is the represen¬ working part-time at Radio Free Asia and USIA Office: (202)401-6405 tative for USAID, has 20 years of experience in hopes to become an FSO. FAX: (202)401-6410 AFSA News Editor: Wesley Ann Godard continued on page 3

AFSA NEWS • DECEMBER 1998 I continued from page 1 RETIREE — Recent Legislation

appealing to the Foreign Service V.P. VOICE Grievance Board. 6. Career counseling for those leaving • BY ED DILLERY the Foreign Service: Currently, career counseling consists of one month of coun¬ seling plus two months paid job search Retirees Keeping in Touch time. The new law allows one month of counseling plus one month for a paid Over the past several months, as another way of strengthening ties job search. This provision takes effect six AFSA has sought to put itself among professional colleagues. months after enactment. on a solid footing for the new The Frosts are about to issue a new 7. LEAP for the Diplomatic Security millennium, I have written about two home exchange directory, with informa¬ Service: Provides the Diplomatic advantages of AFSA membership for tion on exchanges, reasonable rentals, Security Service the same pay system Foreign Service retirees — helping to home sitting and home visiting. AFSA for availability beyond a 40 hour work protect retirement benefits and helping members who are retired or about to week as that provided to other law to preserve the effectiveness of the retire and are interested in more infor¬ enforcement officers. Foreign Service. For the former, AFSA mation should contact the Frosts at P.O. 8. Non-overtime Differential Pay: Permits is your voice both on Capitol Hill and Box 374, Ligonier, PA 15658. the secretary of State to substitute another with your former agencies. For the lat¬ Second, the Journal often reviews day in lieu of Sunday for purposes of ter, you join with us in making our case books which members have written Sunday premium pay in countries where not only in Washington about foreign affairs. I want the normal Workweek includes Sunday. but in public outreach "AFSA member¬ to note a remarkable book 9. Reports Regarding Foreign Travel: throughout the country. by Rebecca Latimer, widow Before attending an international confer¬ A third advantage of ship is helping of FSO Frederick P. Latimer, ence, any employee of an executive AFSA membership is help¬ retirees maintain Jr., whose obituary branch agency, with certain exceptions, ing retirees maintain con¬ appeared in the July-August must report the employee's name, tacts with the Foreign contacts with the issue. Titled You're Not Old agency, the authorizing official and the Service community. Keeping FS community." Until You're Ninety...Best To purpose and expected duration of the in touch with friends is Be Prepared, However, the travel to the director of the Office of important in itself, in addition book was published last International Conferences of the to building solidarity for the year, when Mrs. Latimer Department of State. A final report updat¬ above goals. That's why I'm glad to was 91. It is not about the Foreign ing any information from the preliminary write about a couple of colleagues' Service but about the author's successful report, such as actual cost and duration accomplishments which arose from their search for spiritual and intellectual fulfill¬ of the travel, is due within 30 days of the Foreign Service lives but are not part of ment in the decades after her experi¬ end of the travel. the AFSA agenda. ences as a Foreign Service spouse. Other Legislation Passed and Sent to the First of all, there is the impressive This is the same Rebecca Latimer who President home exchange program which Peter wrote in the Journal as a retiree spouse in • H.R. 633 "Regarding the Computation and Luciana Frost have put together. 1961 (!) about what it was like to be a of Annuities of Certain Special Agents Operating definitely not for profit, the junior officer's wife in 1929 when and Security Personnel of the Department Frosts assembled names and addresses Frederick joined the Foreign Service. of State.": Amends the Foreign Service of Foreign Service retirees interested in With her book, which draws from her Act so that the annuities of those diplo¬ short-term home exchanges and pub¬ personal journal beginning in the late six¬ matic security agents covered under the lished a directory with entries from ties, we are allowed to share her impres¬ Foreign Service Retirement and Disability throughout the United States and sions spanning nearly 70 years. This is a System are adjusted to be identical with around the globe. The concept is a rare treat in a business where we often other law enforcement officers. good one: by swapping homes or do not take time to get to know even our •H.R. 930 "Travel and Transportation vacation homes with each other, contemporaries that well. Reform Act of 1998": Requires all feder¬ retirees can indulge their love of travel The book, which was favorably al employees to use the travel charge while blending into the community they reviewed in the San Francisco Chronicle, card to pay for official government travel. are visiting. By restricting these is available from Blue Dolphin Publishing, Agencies which fail to reimburse expens¬ exchanges to Foreign Service retirees, P.O. Box 8, Nevada City, Calif 95959. es within 30 days after the appropriate the program provides participants ( You can access Amazon.com through voucher is filed must pay late charges. the assurance that both parties the AFSA web site at www.afsa.org. The uniformed services are already involved will share certain general Purchases of any books via this link are a exempt under the act. The head of a fed¬ values and expectations. In the way of supporting AFSA — we get a per¬ eral agency may establish an exemption process, the program offers yet centage of each sale.) if it is in the interest of the agency, and he

continued on page 3

2 AFSA NEWS • DECEMBER 1998 continued from page 2 Recent Legislation EVACUATIONS: BE PREPARED or she notifies the administrator of the When the order to evacuate depen¬ her nanny to the States. She and the nanny General Services Administration within dents and nonessential employees sleep in one room and the three children in 30 days. This also authorizes agencies to from the U.S. embassy in the other room of her efficiency apartment. conduct test programs to pay employee Islamabad came last August, Pat Alter, the Pick the Right Safe Haven travel and relocation expenses. CLO, immediately called Virginia Boncy in While employees must return to their More Good News for the Foreign the State Department and asked,"What do headquarters to work, family members Service I do?" Boncy, who is the support services can go anywhere in the continental U.S. •On Nov. 2, the president signed an officer in the Family Liaison Office, warned An employee can also request an alter¬ executive order which allows FS person¬ her to plan for the long term. The average nate safe haven outside the U.S. (with the nel to switch from one retirement system evacuation period is three to four months approval of the under secretary for man¬ to another for a six-month interval begin¬ and can become permanent. agement). The employee must pay the dif¬ ning on Nov.l. Plan Ahead ference if transportation costs exceed the •The Virginia referendum on allowing Before departing the States: Read the FLO's fare from post to the U.S. In Boncy's expe¬ Virginia residents temporarily residing invaluable pamphlet "Evacuation Plan: rience, evacuees who make the right choic¬ overseas to vote in state and local elec¬ Don't Leave Home Without It!" and heed es of safe haven and schools for them¬ tions passed with a 73 percent vote. The the suggestions such as making out a will, selves and their families also make the best proposal has to pass the state legislature executing a power of attorney(for each psychological adjustment to their plight. one more time to finally amend the adult), establishing a joint checking account Despite the options, family members Virginia constitution. (for couples) and storing originals of impor¬ often stay in the Washington area. There are other issues AFSA supported — tant documents in a safety deposit box. Several families renting apartments in the such as extending the capital gains exclu¬ Have the whole family (age six and older) same complex and placing kids in the sion on the sale of a principal residence take the Security Overseas Seminar. same schools are strategies that can com¬ to FS employees serving abroad, and the Once at post: Keep important papers (i.e., bat isolation. Boncy finds that "if there's a legislation to ensure that people in the travel documents, medical records for family group together in Washington, they act as wrong retirement system are not penal¬ and pets, school records, account numbers, a support group for each other and they ized — that did not pass. AFSA is already household inventory, useful addresses and actually understand the situation much bet¬ hard at work to push those through the telephone numbers) together, so they can ter than Mom or Dad back home do." new Congress. be packed in a hurry. Stay abreast of the The Money Problem local security situation through security brief¬ Once in the States, reality sinks in. Dateline ings and avoid rumors. Evacuees apply for a subsistence expense If an evacuation becomes a possibility: To allowance (SEA) which is authorized by the continued from page ! save time later, make a list of what to pack. under secretary for management in 30-day •On September 29, AFSA's (Remember, one bag each is usually the increments for a maximum of 1 80 days. International Associates (IA) met at a limit.) Plan air freight, if that is an option. If "Financial questions loom very large," says regular policy luncheon to hear Under one spouse is staying behind, decide how to Alter, "The SEA payments seem to lag Secretary Stuart Eizenstat speak on cur¬ pay the bills. Secure valuables and arrange behind the market cost of short-term acco¬ rent international trade and finance issues for pets. (Officially, they are not evacuated, modations. Some people are paying almost AFSA President Dan Geisler presided but when possible, they are accommodated.) all of their allowance for lodging." over the session, which also dealt with In the panic of packing, people make In an extended evacuation, no amount the proposed reform of U.S. economics some strange decisions. Boncy remembers of pre-planning stretches the contents of sanctions practices. The meeting was a two women in particular: one emptied her one suitcase to cover every need. Most timely kick-off for the new season of IA lingerie drawer into her bag and another people find themselves in discount stores activities aimed at building closer ties arrived with her cocktail dresses. They con¬ replacing items that they know they have between the Foreign Service and the U.S. cocted some pretty strange outfits for the first back at post. Transportation is a serious business community. For information couple of days until they had time to shop. problem. Many overseas insurance poli¬ about upcoming events, check the AFSA When the call to evacuate comes: Use some cies do not cover rental cars. The rental website at www.afsa.org. of those precious hours shutting down your agency's insurance can push the rental household to plan your arrival. Alice Wells, price as high as $ 1000 a month. Day care is another problem for working parents AFSA DUES a political officer and half of a tandem cou¬ — both finding it and paying for it. RESTRUCTURING ple, knew from an earlier evacuation experi¬ Evacuated family members who had PIT or REFERENDUM PASSES! ence that the more she could arrange from post, the easier the transition would be, contract jobs in the embassy suddenly find Yes 3,335 especially with three children under the age themselves without that second income. Living in Limbo No 661 of four. She set up her housing before she left. Since she would be required as an Undoubtedly, the hardest adjustment is employee to go to work in the State to the uncertainty. In addition to the sense Thanks to our members for the excellent Department shortly after arrival, she also of loss and grief at leaving home with no voter turnout and support. decided to take on the expense of bringing continued on page 4

AFSA NEWS • DECEMBER 1998 3 continued from page 3 the process. The department is tracking AFSA ELECTIONS - Evacuation recurring problems. Changes in allowances and fine-tuning of logistical arrangements, HEADS UP! chance to say goodbye and no guaran¬ from the arrival process to keeping up with tee that they will recover their belongings, evacuees' mail, are under review. he 1 999 AFSA elections will be held evacuees lose a large measure of control Seventeen posts have been evacuated early next year. As the Foreign over their lives. Since evacuation decisions so far this year. Personnel from 15 of Service faces the challenges of the are reviewed every 30 days, no one can those posts have still not returned. consolidation of foreign affairs agencies plan more than a month ahead. Meanwhile, there is a rumbling volcano along with reduced budgets, it is impor¬ Children are especially affected. near Quito that Boncy keeps on her tant to have strong AFSA leadership. Boncy relates the story of a small boy radar screen. Evacuations are never AFSA members are urged to consider peering into a shop window and lament¬ easy, but good preparation can soften running for the Governing Board, or to ing, "I used to have that toy.'' Alter's son the impact. If a call comes to evacuate encourage others to do so. began his senior year in high school one your post in 24 hours, will you be ready? The formal call for nominations will be day and was evacuated the next. "What carried in the January Journal and a cable we are finding, with all the teenagers will be sent to the field. The deadline for Support Services for especially, is that they aren't interested in Evacuees nominations will be March 5, ballots will becoming involved in [local] schools]. be mailed in mid-May, and the new What they don't have to give is school • Family Liaison Office: Besides a support Governing Board will take office July 15. spirit." Linda Thomas Greenfield, another services officer, the FLO office has an ONLY AFSA MEMBERS CAN tandem evacuee from Islamabad, strug¬ employment program coordinator who NOMINATE CANDIDATES OR BE gles to balance work and the needs of can help find voluntary, temporary or CANDIDATES. her three children aged 15, 12 and 11 permanent work, and an education and without the accustomed support of her youth officer with information about FOREIGN SERVICE DAY husband. "I'm living as a single parent, schools and activities. but I'm not a single parent!" Boncy says Room 1 2 1 2A, State Department MAY 7, 1999 that most evacuees just "want to go back (202) 647-1076 to post as quickly as possible; that's where • Around the World in a Lifetime: A teen Attention Retirees: their home is; that's where their life is." program for FS kids, AWAL welcomes You are cordially invited to participate Staying in Touch evacuees. Many area high schools have in the thirty-fourth celebration of Foreign If post agrees to continue funding the chapters. Contact FLO for information. Service Day on Friday, May 7, 1999. CLO position, FLO provides office space • Employee Consultation Services: This This year we will have a special and support. Alter spends much of her free, confidential counseling service Foreign Service Day program to con¬ 20-hour work week on the phone or staffed by social workers takes appoint¬ tribute to the 75th anniversary year of the sending e-mails to the 250 evacuees ments, walk-ins or telephone consulta¬ Foreign Service. An Honorary Committee from Pakistan who are scattered around tions. The ECS has also held small group chaired by Secretary of State Madeleine the country. To sustain a sense of commu¬ sessions for evacuees. Albright and including all living former nity she sends them a monthly newsletter Columbia Plaza, SA-1, LI 27 presidents and secretaries of State is and plans potluck social events for the (202) 663-1815 leading a series of celebrations in 1 999 150 who are in the Washington area. • The Evacuee Support Network: The to commemorate this anniversary, dating A vital part of maintaining good Association of American Foreign Service from the signature of the Rogers Act in morale is communication. FLO sets up a Women runs this network. AAFSW volun¬ 1924. Events will be designed to monthly briefing at the department. teers meet evacuees at the airport and enhance understanding of the importance Under Secretary for Political Affairs help them get settled. of foreign relations and the contributions Thomas Pickering spoke at a recent 5 1 25 MacArthur Blvd., NW, Suite 36, of the Foreign Service to the well-being of briefing for the Pakistan group and his Washington, D.C. 2001 6 American citizens. candid remarks and obvious concern for (202) 362-6514 DACOR will host an evening recep¬ their plight went a long way to assuage • Overseas Briefing Center: The OBC tion May 6. the frustrations of having the evacuation offers a multitude of courses on subjects If you are interested in attending extended to the 90-day mark with no of interest to Foreign Service families. The Foreign Service Day, please send your guarantee of going home soon. coordinator for youth activities recently name, address and telephone number to Phyllis Powers, the post management facilitated a workshop for a group of the following address: officer in the Bureau of Near Eastern evacuated children on dealing with their Foreign Service Day Affairs and South Asian Affairs, has predicament. Located at the national PER/EX Room 3811 worked on three evacuations so far this Foreign Arrairs Training Center, the OBC Department of State year and knows the value of good com¬ is worth a visit if only to stroll around the Washington, DC 20520-2810 munications. "Explaining all the nit-picky tranquil campus. A formal invitation with instructions housekeeping rules better [is] the best National Foreign Affairs Training Center, will then be sent to you. Please call thing we could do for [the evacuees]." 4000 Arlington Blvd, Room E21 1 4, PER/EX at (202)-647-81 1 5, if you After an evacuation, each evacuee is Arlington, VA 22204 have any questions. asked to give suggestions for improving (703) 302-7269

4 AFSA NEWS • DECEMBER 1998 Inside USAID THE FOREIGN SERVICE COMMUNITY V.P. VOICE • Kathryn and Gene Schmiel (a retired • BY FRANK MILLER • FSO) have recently published, Welcome Home: Who Are You? Tales of a Foreign Service Family. To order a copy, call Is the Reagan Building Secure? (914) 526-2873; fax (914) 526- 2905; s a USAID employee, I am cur¬ of federal buildings," this is not the or e-mail [email protected]. A rently assigned to the Ronald case in the RRB. The FPS manages the • Rebecca Latimer, widow of retired Reagan Federal Building, adminis¬ security of the RRB, the second largest FSO Frederick P. Latimer, Jr., published tered by the General Services U.S. government office building, by You're Not Old Until You're Ninety: Best to Administration (GSA), and have serious remote control. A contract security Be Prepared, However. See Ed Dillery's concerns regarding the building's securi¬ firm (lowest bidder) provides security column on page 2 for details. ty. At an AFSA meeting of USAID for the RRB and reports security inci¬ • Rozanne L Ridgway has been select¬ employees, I discovered that many oth¬ dents to the FPS. The FPS is housed in ed to receive the Public Diplomacy Award ers share my concern. another building and responds very of the Public Members Association of the The Reagan Building is a mixed- slowly. This is wholly unsatisfactory. Foreign Service for her outstanding service use building to which visitors and gov¬ Recent incidents of indecent expo¬ in increasing public appreciation of U.S. ernment personnel have equal access. sure in public areas are the latest foreign policy and of international issues However, unlike other mixed build¬ manifestation of our security prob¬ facing the country. Ridgway, the first ings (e.g. the Capitol), the Reagan lems. These incidents have not been woman to head a geographic bureau in Building lacks basic security measures adequately handled by the contract the Department of State, is a retired FSO (scanners, metal detectors at all security firm nor the FPS. Follow-up who served as ambassador to Finland and entrances, closed access to the under¬ by the FPS is nonexistent or, at best, the German Democratic Republic, assistant ground garage). takes place weeks after incidents are secretary of State for European and Clearly, terrorist attacks against reported. The security cameras that Canadian Affairs and the chief negotiator America (the embassies in Kenya and are supposed to record visitors to the at the Reagan-Gorbachev summit meetings. Tanzania, the World Trade Center, building have no film. Moreover, the She is only the fourth person to receive the Oklahoma City, and Atlanta's Olympic guards allegedly on duty in the con¬ award. Park) have risen in both frequency and trol room are not monitoring the • Gabriel Guerra-Mondragon, former aggressiveness. These attacks occurred RRB's elaborate video screens. ambassador to Chile, has joined in areas believed to have ample securi¬ While other area police and securi¬ Shepardson Stern and Kaminsky, a public ty, but where security failed to deter ter¬ ty agencies have already increased relations, advertising and international rorists. The Reagan Building could be a security at government buildings, tourist consulting firm. prime target in the future. Steps must be attractions and military installations, taken to ensure the security and safety of GSA has contracted for a security Do you have news about an AFSA member or of the federal employees who work here analysis for the RRB. The draft report an event of interest to the FS community? and the public who visit. (AFSA is was completed at the end of Fax it to (202) 338-8244. addressing overseas security separately.) September, yet not one of the three Repeated complaints to the GSA and federal agencies housed in the RRB had THE ASSOCIATION OF AMERICAN the Federal Protective Service have not received the report as of October 3 1. FOREIGN SERVICE WOMEN been successful. GSA Administrator FPS promised to take immediate (AAFSW)/SECRETARY OF STATE'S David Barram has not responded to an steps to improve security but not much AWARD FOR OUTSTANDING August 28, 1 998 letter from AFSA has been done. Can it be that our land¬ VOLUNTEERISM OVERSEAS requesting a meeting with him to discuss lord is more interested in saving money American USG direct-hire employees, security at the Ronald Reagan Building than saving lives? spouses and family members over the age (RRB). Since our letter, there have been AFSA has written the appropriate of 1 8 are eligible for this award. bomb threats and other security inci¬ oversight committees requesting quick Nominations for anyone with outstanding dents at the RRB. action. Because of Lewinskigate and the qualifications should be sent to: AAFSW, Security for the RRB is supposed to rush to complete legislation, AFSA has not 5125 MacArthur Blvd, NW, Suite 36, be managed by the Federal Protective been able to schedule a meeting on the Washington, D.C. 20016; fax (202) 362- Service (FPS) which is part of the Public Hill until early November. We will contin¬ 6589; e-mail [email protected]. The dead¬ Building Service. While the head of the ue to press for action. AFSA members line for nominations is February 1, 1999. Public Building Service, Robert Peck, and others should write, fax or call their A fund has been established to support told the House Subcommittee on Public congressional delegation and request the award. Donations to the fund should be Buildings on October 2, 1998 that immediate action to improve security at sent to the above address. AAFSW is a "security needs to be tightly integrated the RRB. We need your help, so please non-profit organization. into the location, design and operation contact your representative nowl

AFSA NEWS • DECEMBER 1998 5 DREYFUS FELLOWSHIP AWARDS AVAILABLE FOR 1999 - 2000 Perfect Location, Starting at Scholarships and fellowships spon¬ sored by DACOR Bacon House Perfect Comfort, $58 Foundation and a bequest by the late Ambassador Louis G. Dreyfus, Jr. for Perfect Price. Based on a 30 day minimum stay study at Hotchkiss School and Yale University are available to children of Not only are we just minutes from Foreign Service Officers. The deadline National Airport, the National for applications for the 1 999-2000 Foreign Affairs Training Center, academic year is March 15, 1 999. most government buildings, and Contact William C. Hamilton of the Metro-well surprise you with just Foundation's Education Committee at how much you get for so little. (202) 682-0500 or (800) 344-9127 ♦ Spacious suites with or fax (202) 842-3295. full kitchens ♦ Pool, sundeck, saunas and J. KIRBY SIMON FOREIGN SERVICE exercise facilities TRUST SEEKS GRANT APPLICANTS 4- Free Cable TV with HBO

The J. Kirby Simon Foreign Service Trust ♦ Free on-site parking is seeking applications for grants for 1999. 4 Free local phone calls Established in memory of Kirby Simon, an 4 Complimentary Continental 1500 Arlington Blvd., Arlington, VA 22209 FSO who died in 1995 while serving in Breakfast on weekdays 703-522-9600 • 800-275-2866 Taiwan, the trust is committed to expanding 4 Free shuttle to NFATC Fax 703-525-4462 the opportunities for professional fulfillment weekdays at 7:30am, E-mail: [email protected] and community service of active Foreign returning at 4:30pm World Wide Web: vnvw.virginiansuites.com Service officers and their families. (See page 2 of the FSJ for full instructions.)

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8 AFSA NEWS • DECEMBER 1998 Focus

largely been opposed. But when Surprisingly, diers should “be able to choose asked to suppose that Congress and whether or not to participate” (PIPA, the president agree on a course of 63 percent of those June 1996). action, about one out of five respon¬ If such an option were granted, it dents will change their position. polled thought is likely there would be a dramatic That “swing vote” often makes the increase in support for U.S. participa¬ difference between majority support U. S. soldiers died in tion. In the June 1996 poll, 57 percent and majority opposition. said they favored contributing troops One public concern that may come Bosnia. None have. to U.N. peacekeeping. However if the as a surprise to policy analysts is a dis¬ soldiers “had volunteered in advance comfort with requiring U.S. soldiers to for this land of duty,” support jumped participate in U.N. peacekeeping missions. In focus to an overwhelming 82 percent. groups, some respondents — including those supportive of U.N. peacekeeping — expressed the conviction that Response to Fatalities U.S. soldiers had volunteered to defend the nation and its Although many policy-makers fear that Americans will vital interests, not to carry out humanitarian operations. want to withdraw U.S. forces right away if their country’s Consistent with diese feelings, a very strong majority troops are killed during peacekeeping missions, polls would prefer to make U.N. peacekeeping duty voluntary. show little evidence that this is the case. If anything, Given two options, just 36 percent of respondents felt Americans are more likely to want to respond assertively. that “U.S. soldiers should be required to participate in That’s what happened when 18 U.S. soldiers died in U.N. peacekeeping,” while 62 percent said individual sol¬ Somalia — the only U.N. peacekeeping operation that

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 39 Focus

involved U.S. combat deaths. dents were asked to consider a sce¬ Shortly after that firefight, polls by nario in which some NATO troops CNN/U.S.A Today, ABC, and NBC, are killed, 20 of them American, only indicated, respectively, that 55 per¬ 15 percent said they would want to cent, 56 percent, and 61 percent withdraw all U.S. troops, while 62 Mercedes-Benz supported sending more U.S. percent favored an active response: troops. 34 percent favored “striking back” Furthermore — as noted above — while 28 percent wanted to “bring in polls taken after the Somalia operation reinforcements.” Diplomacy suggest that a strong majority still In the February-March 1998 endorsed it. According to two polls Bosnia poll, respondents were asked taken by CBS in October 1993 and one whether it was their impression that has its the following December, respectively American soldiers had or had not 64 percent, 67 percent and 62 percent been “killed by hostile fire in Bosnia said the U.S. “did die right diing” by over the last year.” A remarkable 63 rewards. going into Somalia. percent gave the mistaken answer At American Service Center, your that U.S. soldiers have been killed. Don’t Withdraw, Strike Back Asked to estimate how many had diplomatic or official passport* Other evidence challenges the view been killed, the median estimate was will allow you to purchase a new tiiat Americans will want to withdraw 25. It is noteworthy that despite Mercedes-Benz at dramatic from U.N. operations if fatalities occur. these imagined fatalities, a healthy savings. Contact Erik Granholm, In 1994, 1995 and 1998, PIPA asked majority supported continuing U.S. our Diplomat and Tourist Sales respondents to consider a variety of participation in the mission. Perhaps Manager. A native of Munich, possible scenarios involving American most striking, there was no signifi¬ Germany, Erik has been deatiis during peacekeeping missions cant correlation between the per¬ in Rwanda, Haiti, and Bosnia. ception of fatalities and support for with ASC for 32 years. Respondents were asked to imag¬ continuing the mission. ine that 20-100 American troops In summary, public attitudes on * Applies only while on official business or diplomatic assignment. were killed while carrying out their multilateral intervention are much duties as part of a peacekeeping more positive than is often thought in operation and to imagine that they policy circles. In principle, Americans had seen pictures of the soldiers’ favor contributing troops to such lencan dead bodies on television. They operations. In practice, their support Service Center were then asked whether under for contributing to specific operations Mercedes. Just Mercedes. these circumstances they would varies: Support tends to be strong want to 1) withdraw all American when the U.S. is seen as contributing 585 N. Glebe Road, troops, 2) strike back hard at the its fair share to a multilateral opera¬ attackers, 3) bring in reinforcements tion, when the operation is seen as Arlington, VA 22203 so that future attacks could be met likely to succeed, and when the pro¬ with overwhelming force, or 4) sim¬ posed action seems likely to amelio¬ 703.525.2100 ply stay the course. In every case less rate serious human suffering. Telefax: 703.284.2482 than 25 percent opted for the U.S. to In short, Americans are idealistic withdraw. The majority favored and want to respond to suffering, Mobile: 703.405.4018 more assertive responses: bringing but they also want to know that they in reinforcements or striking back. will not be carrying the burden alone www.americanservicectr.com For example, in the February- and, most of all, that the operation March 1998 PIPA poll, when respon¬ will work. ■

40 FOREIGN SERVICE IOU RN AL/DEC EMB ER 1998 DIRECTOR WENDY & EMERY REVES CENTER FOR INTERNATIONAL STUDIES

The College of William Si Mary seeks nominations and applications for the position of Director of the Wendy and Emery Reves Center for International Studies. The Reves Center is the university locus for interna¬ tional programs and activities (see Reves Center website at www.wm.edu/academics/reves/). The Director supervises undergraduate degree programs in international relations and area studies, and study abroad. The Director is respon¬ sible for continued development of the Borgenicht Peace Project. Working closely with the faculty, the Director serves as an advocate for the internationalization of the curriculum and actively encourages the interests and involvement of students and faculty from across the university in international affairs. The Director works with an external Advisory Council and is expected to play an active role in private fund-raising and grant-writing for the Center. The Director reports to the Provost and supervises the Center’s professional and clerical staff. Successful candidates will have a record of significant achievement in academia or a distinguished career in interna¬ tional affairs (or a combination of both), and possess scholarly credentials and teaching experience appropriate for appointment to the faculty with academic tenure. They will be committed to excellence in teaching and research. The position requires outstanding leadership and administrative skills as well as the ability to communicate effectively with academic and foreign policy communities. Letters of nomination or application with resume should be sent to: P. Geoffrey Feiss, Dean of the Faculty of Arts and Sciences, Chair, Reves Center Search Committee, College of William and Mary, P.O. Box 8795, Williamsburg, VA 23187-8795. Names, addresses and telephone numbers of at least four referees should be included with applications. The Search Committee will begin its review 1 December 1998, and will continue the process until the position is filled. The preferred starting date for the position is 1 July 1999. The College of William and Mary is an Equal Opportunity / Affirmative Action Employer.

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 41 Focus ON HUMANITARIAN INTERVENTION

SHATTUCK’S WORLD Five years as the Clinton s administrations point person on human rights has meant a ringside seat at the worlds unsettling human dramas.

BY MARK A. SAWCHUK

ate in the summer of 1995, when the memory of a sometimes awkward adjustment to the L Assistant Secretary of State for culture of the “up-or-out” Foreign Service. Democracy, Human Rights and Labor ‘Working your way through all the language, and all the John Shattuck entered the warehouse in acronyms, and trying to figure out what the different col¬ Srebrenica, Bosnia, where, in the weeks ored stripes on tire wall mean, and all of those arcane State before, an estimated 7,000 Muslim men had gone to Department issues, takes some time,” he said, “but its well their deaths, the victims of grenade explosions and worth the effort.” Intense competition among FSOs for gunfire, it took a few moments for his eyes to adjust to jobs in recent years has been a boon for Democracy, the darkness. As his vision cleared, he realized that he Human Rights and Labor (DRL), he said, resulting in a had walked into the midst of a gruesome testimony to dramatic rise in staff talent during his tenure. the human capacity for butchery. Spread before him were walls and floors covered with the brownish-red of Red-tape Bureaucracy dried, spattered blood. When his eyes traveled to the Still, even talented staff couldn’t prevent Shattuck buildings twenty-five foot ceiling, he was astonished. from coming face-to-face with State s red-tape bureau¬ Blood had sprayed even the highest point of the cav¬ cracy. “The combination of the clearance process and ernous killing ground. interagency decision-making process means that deci¬ Five years as the Clinton administrations point per¬ sions are made slowly, and in the worst-case situations, son on human rights have given Shattuck, who was they can be mushy, or not made at all — just kicked named ambassador to the Czech Republic in down the road,” he said. “The most effective way to September, a sometimes unsettling but key role in the cut through that is to develop direct relations with all worlds humanitarian dramas, from genocide in Bosnia your immediate colleagues and, most importantly, to the hopeful development of democratic governments with all tire seventh-floor principals, so that there are in the former Soviet republics. The former Harvard more channels for discussion.” professor came to Washington as a Clinton political The ability to go directly to the seventh floor is appointee, left it as an ambassador, and takes with him important for DRL, a bureau that routinely faces new dieories about humanitarian intervention, theories world-wide emergencies. In the last five years, the bom of personal experience. He also carries with him bureau has been heavily involved when the United States intervened in four nations: Haiti, Somalia, Rwanda and, of course, Bosnia. Mark A. Sawchuk was the Foreign Service Journal’s 1998 Shattuck visited Bosnia 22 times during his tenure summer intern. A student at Brown University, he is cur¬ at State. During his first visit, he interviewed Muslim rently spending his junior year in Paris studying at the refugees, survivors who recounted to him the harrow¬ Institut d’etudes politic/ues de Paris (Sciences Po). ing experience of being rounded up by Serbs, herded

42 FOREIGN SERVICE ] OU RN Ah! DEC EM BER 1998 Focus AP PHOTO/RICK BOWMER Assistant Secretary of State John Shattuck in January 1996, near the Bosnian village of Glogova, some 12 miles northwest of Srebrenica, site of the Serbian massacre of Muslim men. into warehouses, shot systematically, then dumped for economic sanctions on countries where human rights dead in nearby ditches and fields. Upon his return to violations are being committed. There is one snag to the United States, Shattuck’s report helped galvanize this proposal, as Shattuck readily admits. Early inter¬ government support for NATO patrols and bombing in vention is rarely available when it is most needed. Serb-held areas. His Bosnian experiences were also the catalyst for his thinking on world-wide humanitarian Conflict-Resolution Paradox intervention, a term that is not always clearly defined. “The easiest and most cost-effective time to resolve a Writing in last springs issue of National Security conflict is, of course, when nobody’s paying attention, Studies Quarterly, Shattuck broke humanitarian inter¬ because it’s not a crisis yet. And that’s the time when tire vention into three types of action: early warning and parties, the people who are facing the crisis, most want prevention, active intervention and justice. His treatise, help,” he said. “As their positions get much more hard¬ entitled “Promoting the Rule of Law in the Post-Cold ened, the international community is more driven to War World,” takes die concept of humanitarian inter¬ intervene in some fashion, but by then it’s often too late vention beyond military action and warns that early in terms of the numbers of lives tiiat have been lost.” intervention and prevention, though not generally Shattuck calls this conundrum the “conflict-resolution thought of as humanitarian measures, are crucial. paradox” and says that it contributed to massive loss of Shattuck’s concept of early warnings systems includes life in Bosnia. preventive measures such as visa and arms restrictions, Fortunately, Shattuck also believes that governments refusal to permit access to international finance and have started to pay more attention to early warnings sys-

DECEMBER 1998/FOREIGN SERVICE JOURNAL 43 SEVEN MINUTES TO STATE DEPARTMENT terns. He estimates that the United States expended some $7 billion in humanitarian aid between 1993 and 1995, during the Haitian, Rwandan, and Bosnian crises. In all three cases, the United States had to resort to COLUMBIA PLAZA sending troops to end the bloodshed. APARTMENTS In contrast, the cost of developing Capital Living organizations effective in conflict res¬ With Comfort and Convenience olution — such as the Organization tlecudifd,, Mpaamti &ffici£Mciei-, / a*td 2 Qedwami- for Security and Cooperation in SHORT TERM FURNISHED APARTMENTS AVAILABLE Europe — is cheap, only a few mil¬ lion dollars, he said. “OSCE is a very Utilities Included 24 Hour Front Desk low-budget, but highly effective, Complimentary Voice Mail Garage Parking Available conflict-resolution mechanism in Courtyard Style Plaza Shopping on Site Polished Hardwood Floors Cardkey Entiy/Access Central Europe, and it’s had a Private Balconies River Views tremendous impact in the Baltic Huge Walk-In Closets Minutes to Fine Dining States and parts of Central Asia.” Shattucks belief in prevention is Walk to the Kennedy Center and Georgetown Minutes to Foggy Bottom Metro so strong that he has proposed an “International Institute of Justice” to (202) 293-2000 bring humanitarian intervention into 2400 Virginia Ave., N.W. tire 21st century. The Institute of Washington, D.C., 20037 Justice would be a U.N.-based entity Mcaitco^A Inf-Polintf&i, & JhicUi- Go-. with offices in four main regions of the world: the Americas, Africa, Central Europe, and Asia. Its pur¬ pose would be to activate already existing organizations to contain con¬ PvT I A flicts before they lead to genocide. The Impossible Dream NATIONAL TEMPORARY Though this may appear to be a visionary, intangible goal, Shattuck APARTMENTS, INC. contends that the elements of such Short-Term Furnished Apartment Specialists an institution already exist. He con¬ siders the strengthening of regional Comfortable organizations, such as the OSCE Fully furnished one, two or three bedroom apartments to your specifications. and the Organization of American All linens, towels, kitchenware and other amenities provided. States, to be the most important Cost Effective recent development toward this Far less expensive than most hotels or suites. goal, and says the war crimes tri¬ bunals in Rwanda and Bosnia and Convenient the Office of the U.N. High Locations all around Washington, D.C., Northern Virginia and Maryland. Commissioner for Human Rights, One phone call and we do all the work. created in 1993, also play a role. Similarly, he cites U.S. efforts to (301) 495-8927 strengthen domestic justice systems (30 day minimum stay) around the world. Shattuck wants to strengthen 8737 Colesville Road, Suite 302, Silver Spring, MD 20910 multilateral organizations, but said not all of them should be integrated

44 FOREIGN SERVICE J OU RN AL/DEC EM B ER 1998 into the institute. “As it turns out, the International Criminal Court was much too simplistic and in some ways a dangerous institution.” he said. “You can’t just say, ‘Lets create some vast international structure and let that solve the problem.’” Even Shattuek’s use of the term “institute” is a misnomer. He does not mean a centrally-run organization housed in a modem office building or at the State Department. “Whether FARA Foreign Affairs Recreation Association the Institute of Justice will ever FARA Housing Division, become a formal international organi¬ Managed by ECMC zation with its title on the door and a 610 Bashford Lane, Alexandria, VA 22314 cute logo, I can’t say,” he said. Ph: (703) 684-1825 Fax: (703) 739-9318 Whether or not the institute becomes a reality, the five years John We are proud to provide the best hotel values in the Washington, DC Shattuck spent in State’s color-coded metropolitan area! You can choose from properties offering studios, hallways added to the Clinton admin¬ one bedroom, 2-bedroom apartments, suites & hotel rooms. istration’s legacy on human rights Our locations have unique proximity to FSI, State Department, the intervention. “One of the things I’m Pentagon, NFATC, National Airport, Old Town , Alexandria, very proud of over the first five years White House and Georgetown is I think we’ve moved human rights For more information call for features and rates of participating FARA hotels. issues into the mainstream of foreign policy,” he said. He points out that now human rights concerns are one of seven pr iorities in the foreign poli¬ cy budget. “So, bilaterally, interven¬ tion is much more connected with MARTENS VOLVO our foreign policy than it was just a Dedicated to Diplomacy few years ago.” As a result, says Shattuck, the Worldwide Delivery to Diplomats Clinton administration was the first and Members of International Organizations to commit U.S. troops to multilater¬ al intervention irt Haiti and Bosnia. He also points out that Secretary of State Madeleine Albright has instructed American embassies to create human rights and democracy committees, a move that gives human rights more priority. When asked what he’s learned about State, Shattuck chuckles. “Lessons about State?” he asks. ‘Well, you’ve got to be willing to accept defeats, and you’ve got to stick it out, Contact: Dana Martens, Diplomatic Sales Director bide your time and stick by your prin¬ ciples. Keep coming back, don’t give CARS OF WASHINGTON, INC. Fax up on something you think needs to 4800 WISCONSIN AVE. WASH., DC 20016 be accomplished. Blit be realistic; you U.S.A.’s Largest Diplomatic Dealer can’t change tilings overnight.” ■

DECEMBER 1998/FOREIGN SERVICE JOURNAL 45 LOCKERBIE ly members understood this desire continued from page 14 to move cautiously, but some criti¬ cized procedures, pressed for more press briefing about what was known Some grieving families information and called on the U.S. of the disaster to that point, then government to “do more.” pressed for more departed. Telephone lines had been As a result, American diplomatic installed in the temporary office information and called officials in London, including assigned to the American consular Ambassador Price and Ed Kreuser, unit. We set about procuring on the U.S. government began meeting relatives upon arrival American victims’ passport records in London to offer what information and provided our London colleagues to “do more. ” and comfort they could before the with a quick course in Scottish law, families continued to Scotland. which differs significantly from that Once in Lockerbie, the relatives of England. This relatively technical were provided briefings, escorts and operation provided the framework grievance counseling by the Scottish from which we would carry out our By then, the so-called “Helsinki government, while our consular broader consular responsibilities. Warning,” an FAA bulletin issued team worked with them to gather before the crash war ning government information that might expedite Families in the Spotlight employees of the possibility of identification of the victims. The following day, our office was heightened terrorist activity during deluged with media inquiries, so I the holidays, had become public. Investigating the Horror contacted Embassy London and Some relatives were already com¬ I spent much of this period in asked that a public affairs officer be plaining that they had been treated meetings with Scottish law enforce¬ assigned to help us deal with the insensitively by State Department ment officials and Pan Am represen¬ press. After considerable delibera¬ officials in Washington who had noti¬ tatives covering a host of sensitive tion, the request was denied on the fied them of die disaster. These feel¬ subjects. At first, Scottish authorities grounds that the American consular ings were compounded by the per¬ wanted to wait until all recovered operation should not be a focal point ception that the deaths might have remains had been identified before of media inquiry about the investiga¬ been avoided if the Helsinki warning releasing any bodies. I joined with tion. Instead, the British should have had been shared with die traveling Pan Am representatives in urging the public relations lead, both out of public. It made die relatives feel that that the process begin as soon as respect for their sovereignty and to somehow their own government possible, even if only a few bodies ensure their cooperation in the shared accountability with the anony¬ could be released. As with most of investigation. mous terrorists. Lack of information our requests, the Scots agreed. This was not a gag order. I had brought the families together in Even under optimal circum¬ already given some interviews and anger and frustration. Some took stances, strict observance of Scottish was authorized to use my own dis¬ advantage of die microphones and law usually entailed a week’s delay cretion about dealing with the cameras thrust in dieir faces to air before the remains of deceased for¬ media. Diplomatically and substan¬ their grievances, agitate for action eign citizens could be shipped home. tively, it made sense for the and seek to influence decisions made Circumstances at Lockerbie were American consulate not to brief the by British and American officials. anything but optimal. Many ques¬ press. We were not, after all, a repos¬ Understandably, Scottish authori¬ tions had to be answered. What con¬ itory of information about the inves¬ ties were anxious to avoid missteps stituted “final remains?” What about tigation. But this situation created a in what was developing into a crimi¬ the possibility of misidentification if media vacuum at Lockerbie that was nal investigation on an unprecedent¬ forensic work was done too quickly? soon filled by an unexpected source. ed scale. Pan Am 103 was being What was to become of unidentified In a move that caught me only painstakingly reassembled and the body parts? When would the search slightly less unaware than the crash ground surrounding the crash sites stop for victims no trace of whom was itself, Pan Am began flying victims’ was being gone over again and again. ever found? Despite these obstacles, families to the United Kingdom. The Scots were reluctant to release Scottish authorities began releasing Many of them arrived shocked, bodies or property that might bodies about a week after the crash. angry, grieving and aggrieved. become useful evidence. Most fami¬ The process was basically completed

46 FOREIGN SERVICE ] O U RN AL/D EC EM B E R 1998 two weeks later, a remarkable never forget, one father told me that achievement given the pressures they he had lost both his sons in unrelated were under. bombing incidents and could not About diat time the consulate Pan Am and the bear the drought of not having all that began to turn a comer in its relations remained of their memory. consulate asked the with the victims’ families. Once we The response of the Scottish had determined who the next-of-kin Scots to begin authorities and the people of were — not always clear in cases Lockerbie was typically open-heai t- where that designation was disputed releasing bodies ed. Volunteers laundei'ed, tioned among parents, spouses, siblings or and packed away the tattered adult children — I began to corre¬ as soon as possible. clothes for eventual return to the spond with them regularly, express¬ families. Through this, and count¬ ing condolences, explaining the con¬ They agreed. less other gestures, the townspeople sulate general’s conservatorship role and the American families estab¬ for the property of deceased lished bonds in the aftermath of Americans, and keeping them their mutual tragedy that remain apprised of procedural develop¬ strong ten years later. Perhaps it is ments. The Lockerbie consular team for them and they needed informa¬ significant that Lockerbie lies in the also kept in touch with the families tion. Elizabeth became respected by heart of “Burns country,” the region by telephone and fax. Nevertheless, all agencies at Lockerbie for her frequented by Scotland’s national some relatives saw us initially as, I aggressive pursuit of the families’ hero, the humanist poet Robert suppose we sometimes saw our¬ interests. So much so that the lead¬ Burns. His songs and poems speak selves: bureaucratic functionaries ing Scottish police official at to the human condition like no one filling out consular reports of death Lockerbie began referring to her, else's and his compassion is part of and unable to answer many of their with admiring chauvinism, as “tire the fabric of his countrymen. immediate questions about the crash wee tiger.” For her efforts on behalf and the investigation. of the relatives, Elizabeth received Lessons of Lockerbie tire State Department’s highest com¬ What are the “lessons” of Connecting with Families mendation for consular work the fol¬ Lockerbie? What are its legacies? The impression began to change lowing year, the Consular Service There is no doubt that die Pan when I detailed Vice Consul Award. She was not alone in deserv¬ Am 10,3 disaster was a watershed Elizabeth Leighton from Edinburgh ing it. The other consular officers event that required the State to head the consular unit at detailed to us from London, not to Department and other U.S. govern¬ Lockerbie and be the primary liaison mention our depleted Foreign ment agencies to reexamine their with the families of all 189 American Sex-vice National staff, spared no policies and practices. First, a dou¬ victims. A second-tour officer, effort to be of service to the families ble standaid must never again be Elizabeth combined a commanding in the aftermath of the tragedy. created by providing information knowledge of the Scottish legal sys¬ That does not imply we exercised about possible terrorist danger to tem with the tenacity and empathy infallible judgement. Some things government employees that is not required to win the trust of the rela¬ simply couldn’t be anticipated. For also made available to die traveling tives and turn the consular unit, and example, when the Scottish police public. This requirement certainly thereby the consulate general, into infonned me that certain articles of infonned our thinking and planning what we wanted it to be: the prima¬ contaminated clothing would be at my subsequent post in Bonn dur¬ ry advocate for the families’ interests destroyed because they constituted a ing the run-up to Operation Desert in Scotland. health hazai d, I accepted this as a fact Storm, as we discussed with U.S. To accomplish this, Elizabeth and and passed it on to the families in a military leaders in Germany the her team had to establish personal letter. Their response was dramatic. need to provide cautionary assess¬ relationships with the families. A few By phone, fax and telegram, they ments of potential danger to both rejected our overtures as intrusive, asked me not to let this happen. Only resident and traveling Americans. but most did not. They needed help the families should decide what to Second, it is now a fact of li fe that in establishing themselves as the keep and what to destroy, they said. unless an airplane crashes in an inac¬ legal heirs to the property we held In a telephone conversation I will cessible area, officials will have to

DECEMBER 1998/FOREIGN SERVICE JOURNAL 47 deal with victims relatives on the at die end of 1988, during a political spot on all aspects of the disaster, no interregnum. George Bush had been matter how complex, peripheral elected president, but was not yet in or gruesome. office. Ronald Reagan was about to Officials will con¬ leave office, his administration dis¬ A high-level stantly have to tracted and weakened by Iran- Association of Boarding balance the need Contra. So it was that British Prime Schools expression of for secrecy, or at Minister Margaret Thatcher and 1620 L St., NW, Suite consolation to least discretion, Prince Charles paid their respects at 1100 against the need Lockerbie, but the highest-ranking Washington, D.C. 20036 victims' families of the bereaved U.S. official to do so was (202) 973-9753 for information Ambassador Price. The only other web: www.schools.com mast be part of and solace. The administration official I recall going presence of to Lockerbie was Deputy Secretary BCIS Directory of the U.S. response media digging for of Transportation Elaine Chou, who information, for came several weeks later. Schools to disaster. whom the rela¬ Finally, lessons were learned at European Council of tives’ loss and Lockerbie about cooperation and International Schools emotional state resource sharing across traditional 21 Lavant Street become stories, complicates this bal¬ lines between agencies, sectors and Petersfield, GU32 3 EL, ancing act. nations. The presence of the victims’ UK families at Lockerbie made such 44 1730 268 244 A Political Interregnum cooperation essential. Whedier diis web: www.ecis.org Further complicating the situa¬ offers a paradigm for dealing with e-mail: [email protected] tion are heightened public expecta¬ future disasters, I cannot say. tions regarding official responses to However, it certainly confirms the old Family Liaison Office disasters involving the loss of life. diplomatic saw that there is no limit to Since the Reagan administration in what you can accomplish provided Department of State particular, sorrow and grief have you don’t care who gets the credit. M/DGP/FLO Room become public, political events. A Lockerbie is not just the story of 1212A symbolic expression of consolation the days and weeks following the Washington, D.C. 20520 to victims’ families at the highest disaster. It is also the story of those (202) 647-1076 political level is now the measure of who persevered for a decade: politi¬ web: any official response to disasters. cal and legal authorities, consular www.state.gov/www/flo The absence of this symbolism at officials and, of course, the families e-mail: [email protected] Lockerbie did not go unnoticed. The of the victims. Ten years later, we state.gov bombing of Pan Am 103 was an share the prospect of seeing some overt act of political revenge aimed kind of closure to the tragedy in the IECA Directory at America as a result of the shooting hope that the two Libyans accused down of an Iranian airliner by U.S. of the bombing will be brought to Independent Educational naval forces in the Persian Gulf. The trial reasonably soon. Consultants Association 270 people who died at Lockerbie, This will be an important event, not 4085 Chain Bridge Road, by no means all Americans, were just from tlie point of view of seeing Suite 401 random targets of that revenge, justice done. It is an affirmation that Fairfax, VA 22030 drawn unwittingly into the politics of anarchy and brutality cannot be (703) 591-4850 the Middle East. Their families allowed to hold sway over civilization, web: www.educational expected acknowledgement and over our respect for life. It also tells us consulting.org acceptance of responsibility for that that, long after the lights and cameras e-mail: fact, which they did not receive. The are gone, committed people will work [email protected] “Helsinki Warning” compounded for as long as it takes to redress an inex¬ their resentment. cusable act. Surely that too is a legacy The Lockerbie disaster occurred of Lockerbie. ■

48 FOREIGN SERVICE JOURNAL/DECEMBER 1998 Piefci Goiataets C©nfcffiM©d„».

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A FOXCROFT EDUCATION PREPARES YOU FOR A WORLD OF OPPORTUNITY

At Foxcroft, young women prepare for college and for life. They discover and enhance their best academic and personal strengths in this community of learners where 95% of the faculty live on campus. Annual events such as the Goodyear Fellow Program, a two-week Interim Program, and the Poetry Festival enrich the rig¬ orous curriculum. In small classes, the faculty focuses on the collaborative way girls leant best; a Learning Center is available. Outstanding extracurricular opportunities include the Leadership Program, Senior Projects, and eight sports teams—one of which is a Champion Riding Team. Foxcroft’s 500-acre campus provides a beautiful and safe setting located just 50 miles from the cultural and educational resources of Washington, D.C. FOXCROFT •SCHOOL- Foreign Service Scholarships Available Foxcroft is a college-preparatory boarding and day school for girls in grades 9-12. For more information, please contact; Mary Guest Looney, Director of Admission, Foxcroft School, Post Office Box 5555, Middleburg, VA 20118 1-800-858-2364 • 540-687-4340 • [email protected] www.foxcroft.org

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DECEMBER 1998/FOREIGN SERVICE JOURNAL 49 SCHOOLS SUPPLEMENT

Schooling the Learning-Disabled Child Abroad

BY SALLY L. SMITH

“The teachers are telling me he’s “My husband couldn’t leave his sta¬ well ahead of when they would need to lazy and won’t try hard enough. They tion in Africa so I alone had to take my acquire that knowledge in the States. say we have spoiled him in America.” two children under three years of age Frequently they unite behind this to London for a week of testing.” child and find ways for him or her to “There was no way he could exist succeed in some activities, be it in the in any school in Burma so I had to — comments of American parents arts, physical activities or in some area home-school him.” who have lived abroad with learning- of the new culture. Diversity can be mi disabled children attribute, not just a nuisance. Still, the “My hyperactive twins were kicked tribulations of parents overseas should out of play group in Tanzania at age For parents of children with severe not be underestimated. three for being ‘too immature.’” learning disabilities, dyslexia, prob¬ To begin with, 85 percent of the lems with their own language and children with learning disabilities and Sally Smith is a professor at American attention deficit hyperactivity disorder ADHD also have problems in speak¬ University in charge of the Graduate (ADHD), moving abroad causes great ing, reading and writing their own lan¬ Program in Special Education/Leaming difficulties but can, at times, also bring guage. Therefore language abroad Disabilities. She is the author of No Easy unexpected gifts. Families have to causes problems for them, because the Answers: The Learning Disabled Child assess what their child’s strengths are intonations and pronunciations, even at Home and at School (Bantam). as well as areas of weakness — usually in English, can be so different. TASIS The American Schools in Europe in a class by themselves

Since 1956, TASIS has been the first choice in international education ■ Magnificent campuses near Lugano, Switzerland, and London, England ■ Co-educational; Day Students, Pre-K-12; Boarding, 7-12; Post Graduate year ■ Challenging and diverse curricula: US College Prep, Advanced Placement Program, International Baccalaureate ■ Extensive Travel, Sports, Art, Drama, Music, & activities ■ Outstanding university placement record ■ Exciting summer programs, offering foreign language and enrichment courses ■ Scholarships for Foreign Service children

Please contact our TASIS U.S. Office, quoting Ref. FSI/98 1640 Wisconsin Ave, NW, Washington, DC 20007 Tel: (202) 965 5800 • Fax: (202) 965 5816 • e-mail: [email protected] www.tasis.com

50 FOREIGN SERVICE ] OU RN AL/DEC EM B ER 1998 SCHOOLS SUPPLEMENT

Coping with change is a big problem for children with these difficulties. They are fragile and respond adversely to different settings, to surprises, to sudden changes in plans. They crave familiarity and sameness because diey suffer from a neurophysiological-based disorder, and have a fragile sense of order and organization. Learning disabilities and ADHD are intrinsic to the individual. Parents and teachers can’t cause them but they can make the condition worse or better. The problem lies in the neurology of the brain. Its as if the switchboard of the brain interferes and short-circuits some of the information coming in, or as it’s getting organized, and interferes with some of the information coming New Mexico Military Institute is located in Roswell, New Mexico, and out. These youngsters are easily con¬ encompasses over 40 acres of the finest academic facilities in the Southwest. fused and overwhelmed. NMMI was founded in 1891 and has been educating leaders with world-class academic programs for more than a century. Cadets at NMMI are given a solid Many of these children are impul¬ foundation in scholastics and an opportunity to learn ideals not taught at most sive and hyperactive. This causes other institutions of learning. embarrassing situations overseas if Cadets are entitled to a safe environment of trust and respect while at New Mexico they blurt out what they have heard at Military Institute where human dignity and worth are valued. We treat all cadets home. When a diplomat and his wife as individuals, each according to their uniqueness, in essence treating them were discussing another diplomat who EQUALLY well. was coming to dinner at their house that night who they felt was a hyp¬ we build ocrite, their son asked one of the guests if he were "the hypocrite.” On character the other hand, this same impulsive hyperactive child was greatly beloved by all the neighbors because he was We Teach Leadership always talking to them, bringing them OUR VISION flowers he picked from their yards New Mexico Military Institute, operating and introducing them to each other. within a conducive military environment, will be the nation’s finest college prepara¬ Yes, there’s a naivete and freshness tory high school/university parallel junior about these youngsters. Frequently college. they behave younger than their years and do better playing with children OUR MISSION younger than themselves. The inter¬ Provide quality education and character national community overseas is often development for tomorrow’s leaders. more protective of these children than OUR VALUES we are here in America. Honor, Excellence, Service and For the children who have been Responsibility. diagnosed before the family moves abroad, every record, every letter explaining how this child learns, is golden. The school, if it understands New Mexico Military Institute or is willing to understand learning DRUG FREE • ALCOHOL FREE • TOBACCO FREE disabilities, can help the youngster FAX (505) 624-8058 E-Mail: [email protected] better with detailed information. The State Department and the call 1-800-421-5376 Department of Defense have person¬ nel in Washington prepared to guide

DECEMBER 1998/FOREIGN SERVICE JOURNAL 51 SCHOOLS SUPPLEMENT

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S' Comprehensive Residential and Day Programs S' Extensive athletic, extracurricular, arts and S Every student is equipped with a laptop I—> . , ...... community service programs computer through Applebv’s e.school A four-year high school university program | ,7 Vibrant and challenging academic S Structure, discipline and small class sizes S Internet and e-mail for every student curriculum S Caring teachers who motivate S Extensive facilities including gymnasium, pool, arena and student technology center Orientation and weekend programs S 52-acre lakeside setting located 30 minutes west of Toronto, Ontario, CANADA

For more information, please contact the Admissions Office at: 540 Lakeshore Road West, Oakville, Ontario L6K 3P1 Tel: (905) 845-4681 ext. 252 • Fax: (905) 845-9505 E-mail: enrol @appleby.on.ca Visit us on the Internet: www.appleby.on.ca

52 FOREIGN SERVICE 1OU RN AL/DEC EM B ER 1998 SCHOOLS SUPPLEMENT

families to proper help. They know Students from 34 states and 15 countries the independent international schools meet at Shattuck-St. Mary’s School in each country and which ones are for an outstanding academic experience prepared to help children with special in a secure, midwest campus community. needs. The State Departments Office The student-faculty ratio is 7-1 of Overseas Schools is an important and all teachers live on campus. resource. Also, State or DOD person¬ Other features include: nel can point a family toward new ♦ Grades 6-12 ♦Coed schools being formed, which usually ♦ Boarding and Day have veiy small classes — always help¬ ♦ Separate Middle School and ful to special needs children. Upper School programs The Department of Defense ♦ Outstanding coaching in drama, Dependent Schools (DODDS) are found music and athletics primarily in Europe, Korea, Okinawa and ♦ 45 minutes from Panama and have some excellent special Minneapolis/St. Paul airport education programs. They are generally open to children of parents from odier Cal! 507-333-1618 U.S. agencies. But there are countries Fax 507-333-1661 where they have nothing. E-mail: [email protected] There are some youngsters who need to attend special needs hoarding schools in the U.S. or U.K., but most parents don't take advantage of these facilities until the children are of high school age. Some parents have had to resort to SHATTUCK* SI) MARYS SCHOOL home schooling and then they find FARIBAULT, MINNESOTA, U.S.A. afternoon recreation activities their child can join. In some cases, the State Department cooperates with a school, like my own Lab School of Washington, where a child may come TASIS for a six-week intensive summer pro¬ The International Schools gram plus occupational therapy, in a class by themselves speech language therapy and special social skills training. Then the school writes up a program accompanied by Since 1955, TASIS has been the first the necessary materials for the tutors choice in international education. and parents to follow. ■ Three magnificent campuses in In most cases, the child thrives Europe, near Lugano, London, abroad by remaining a part of the Athens family rather than being sent away to ■ Co-ed; Day Students, Pre-K-12; boarding school (though sometimes Boarding, 7-12; Post Graduate year this is just what the child needs). ■ Challenging and diverse curricula: Overseas, the child may pick up spe¬ US College prep, A.P., I.B., I.G.C.S.E. cial interests and expertise in animal ■ Extensive travel, sports, arts and life, plants, art, music, photography, or activities shadow puppets, to name just a few. One student, whose family moved ■ Outstanding university placement record to Latin America, had miserable school experiences, but returned to ■ Exciting summer programs offering this country with incredible knowl- foreign languages and academic J credit courses. edge of geography, environmental TASIS U.S. Office, Dept. FSJ 1640 Wisconsin Avenue, NW, Washington, DC 20007 conditions and the rain forest, and had Tel: (202) 965-5900, Fax: (202) 965 5816 ■ Scholarships for Foreign Service learned to make primitive musical E-mail: [email protected] children Website: http://www.tasis.com instruments. Another student returned

DECEMBER 1998/FOREIGN SERVICE JOURNAL 53 SCHOOLS SUPPLEMENT study art at A summer arts camp for students ages 8-18 and an arts academy for 435 high school students

MUSIC ■ THEATRE ARTS ■ DANCE ■ VISUAL ARTS ■ CREATIVE WRITING ■ ACADEMICS

Interlochen Center for the Arts address PO Box 199, Dept. FSJ, Interlochen, Michigan 49643-0199 telephone 616.276.7472 fax 616.276.7464 e-mail [email protected] world wide web www.interlochen.org

THE WHITE MOUNTAIN SCHOOL The Pe.r-fe.ct F fcviro#o*a*t for LeAriM*^

0 Safe and structured environment 0 Strong college preparatory 0 Small participatory classes curriculum 0 Top notch outdoor program - 0 Student/teacher ratio 4:1 hiking, mountain biking, 0 Personal attention and support paddling, rock climbing (See website for details) 0 Hands on learning opportunities 0 Studio arts, theatre and dance 0 Individualized college counseling 0 Competitive ski racing program v: 0 Award winning community 0 Recreational skiing and service program snowboarding ••

West Farm Road, Bethlehem, New Hampshire 03574 603-444-2928

E-mail: [email protected] Website: www.whitemountain.org ■A

54 FOREIGN SERVICE J OU RN Ah! DEC EM B ER 1998 SCHOOLS SUPPLEMENT

with great skills in mountain climbing and kayaking. A severely learning-dis¬ vv abled youngster who had been living in a Francophone African country for sev¬ eral years returned with an art portfolio that was so outstanding it helped him get accepted by a college that had an excellent art program and strong learn¬ ing-disabled sendees. WASHINGTON IN Living abroad, particularly in less developed countries, can be exceedingly difficult, particularly when people there ■ V have no knowledge of learning disabili¬ ^NATI ONNV ties, language problems and ADHD. > Pre-K through Grade 12 day school Parents receive no help with diagnosis of >- Bilingual and second language programs in problems or treatment strategies. English/French and English/Spanish >- Advanced math and science preparation However, many Foreign Service people > International Baccalaureate Diploma program comment on how “child-centered” these >- Extended day and summer options cultures are and what wonderful help > Selective, competitive admissions the care-givers they employ giv e to their children, especially to those with special needs. However, the major burden of living abroad falls on the parents, most often the mother. Parents must: Primary School: Reservoir Road at 36th Street, NW, Washington, DC 20007 • educate themselves to under¬ Middle and Upper Schools: 3100 Macomb Street, NW, Washington, DC 20008 stand fully the nature of learning dis¬ Admissions: (202)243-1815 Fax: (202)243-1807 [email protected] abilities, language problems and ADHD in order to become strong advocates for their child; • must coordinate everything from doctors talking to each odier, to edu¬ cators sharing reports with tutors, to specialists sharing information with baby sitters; • must attempt to satisfy the spe¬ cial needs of this child while not losing track of the other children; • must keep their marriage alive, despite the stress and anguish caused by the special-needs child; • must become to some extent teacher, recreation worker, coach, guide, cheerleader and friend for the child; • must become an investigator to find appropriate schools and existing At 106 years old, the co-educational Baylor School offers: programs; and • small class sizes and an outstanding faculty • must become an extraordinarily • 17 Advanced Placement courses gifted problem solver. • excellent college placement But look at the positive side; • championship athletic program Children with learning disabilities • a beautiful 700-acre campus located on the banks of the build character. They train parents so Tennessee River. well that after they make progress, parents find they can create and man¬ www.virtual.chattanooga.net/baylor age large institutions with ease. They email: andy_tucker.chattanooga.net (423) 267-8505 can run anything! ■

DECEMBER 1998/FOREIGN SERVICE JOURNAL 55 SCHOOLS SUPPLEMENT

★ NEW YORK MILITARY ACADEMY ★ * * >< NEW YORK MIMTARY ACADEMY V s m )i

books w n Our Second Cepfi*r;$$)i Excellence < >< U ★ Leadership Development 0 < ★ 10:1 StudentTeacher Ratio V ai ★ Computer Lab/Sat Prep < H ★ C\vEducational/Grades 5-12, PG r i—i ★ Structured Environment H Ji ★ College Preparatory JO S Kj QZ Sports^Program > Visit us at n ★ o [www.afsa. A >* II > 0 org]. There £ CALL 1 -888-ASK-NYM A( 275-6962) w you can find: w Cornwall'On-IftidsoA< NY 12520 M 5 Miles E-mail: [email protected] Day • The latest North Of Students news of what West Point WWW.nyma.org Welcome * we’re doing ★ NEW YORK MILITARY ACADEMY ★ at AFSA A • AFSA Book Reviews • Links to Amazon.com’s Z Maxwell International Baha’i School website When you link to O Best of Both Worlds: i Amazon.com through our Academic Excellence & website, Moral Environment AFSA N receives a Maxwell referral fee Residential & Day Students . . ^International (at no cost to >• Grades 7-12, Co-educational Baha’i School you) on every book University Preparatory & ESL or CD that >- Country Setting on Vancouver Island you buy. C >■ Email: [email protected] Web site: www.maxwell.bc.ca O Maxwell International Baha i School 2371 East Shawnigan Lake Road Bag 1000 Shawnigan Lake, British Columbia, Canada VOR 2W0 M Phone (250) 743-7144 Rut (250) 743-3522

56 FOREIGN SERVICE J O U RN AL/D EC E M B E R 1998 SCHOOLS SUPPLEMENT

MERCERSBURG OFFERS ALL The Brush Ranch School THE HALLMARKS OF A STRONG u b A Boarding School INDEPENDENT SCHOOL. Specializing in the «Academic Problems -''dedicated, talented faculty; a rigorous curriculum; e ho* of Children with small classes; award-winning programs in the arts, music, Learning Differences and athletics; and uncommon facilities on a spacious, historic campus. Mercersburg serves above average to exceptional A structured Program of students seeking strong college preparation and competitive Personal Achievement college placement. Recent renovations and construction of Developed for Each Student a new library provide state-of-the-art classrooms, laboratories, Through: ■ Academic Instruction computer centers, and studios all linked by Mercersburg’s ■ Recreational Activities on-line network with Internet access. ■ A Broad Array of Electives i ■ Social Development

MERCERSBURG Gary R. Emmons, Headmaster Accreditation: North Central A Tradition of Excellence Since 1893 P.O. Box 2450 Association, New Mexico Board OFFICE OF ADMISSION Santa Fe, NM 87504-2450 of Education, California Dept, of (505)757-6114; Education; Member: NAPSEC, 717.328.6173 FAX: (505) 757-6118 ODS, LDA.CEC fax 717.328.9072 ♦ http://www.mercersburg.edu 300 EAST SEMINAKT ST. ♦ MERCERSBURG, PA 17236-1551

HAMPSHIRE COUNTRY SCHOOL OXFORD ACADEMY A small boarding school for high ability boys aged ONE STUDENT, ONE MASTER IN EACH 8 -15 years old who need the extra structure, CLASS personal attention and sense of belonging that can be found only in a very small school community. For boys ages 14-20, of average to superior intelligence who have academic deficiencies; who • Seven day boarding for 25 boys have lost one or more years of school; who wish to • Usual grade levels 4-10 accelerate; or international students wishing to • Classes of 4 to 8 students improve their English in our ESL program and enter • Family style dorms of 6 to 8 students American universities. Completely individual • Recreational soccer, softball, hiking, horseback riding, tennis, music, and art instruction. Rolling Admissions. • 1700 acres of woods, fields, ponds, Boarding and Tuition hills and streams January 4-June 4, 1999: $24,100.00 • A good opportunity for certain high February 22-June 4, 1999: $17,400.00 ability students with nonverbal learning disabilities or attention problems. Summer School June 20-July 23, 1999: $4,975.00 William Dickerman, Headmaster 122 Hampshire Road EDUCATIONAL PROBLEM SOLVERS Rindge, NH 03461 SINCE 1906 Telephone; 603-899-3315 Fax; 603-899-6521 Dept. FSJ, P.O. Box P, Westbrook, CT 06498 E-mail: [email protected] Tel: (860)399-6247; Fax: (860)399-6805 URL: www.hampshirecountryschool.com email: [email protected]

DECEMBER 1998/FOREIGN SERVICE JOURNAL 57 SCHOOLS SUPPLEMENT

PERKIOMEN real things are happening SCHOOL at The Williston Founded in 1875 Northampton School! fj S AT Come and meet our people,

The Reed Campus Major dormitory see our place, and Center with six enhancements including learn about our program art studios, photo lab, phones and Internet dance studio, music connections in every practice rooms, snack room. College Preparatory bar and more! Theatre with computerized Boarding 7-12, PG Challenging academic sound and light controls co-ed program with many AP is home to an award¬ 7 to 1 Student Teacher Ratio and Honors options. winning program. Strong Athletic and Fine Arts Programs 100+ acre Visit our Web Site and see for yourself at http://www.williston.com Of course you can still call, write or send an email request for informa¬ contact: Carol Dougherty, Director of Admissions, tion to the Admission Office at: Perkiomen School, P.O. Box 130, 19 Payson Avenue, Easthampton, MA 01027 Ph. 413/527-3241 Fax. 413/527-9494 Pennsburg, Pennsylvania 18073 Email: [email protected] Phone 215-679-9511 Fax 215-679-1146 Coed,420 students, grades 9-12/PG Founded 1841 e-mail: [email protected] www.perkiomen.org

\*LV Wished CALVERT SCHOOL The School That Comes to You Calvert School knows that it is hard to plan a home school curriculum—that's why we've done the planning for you. Rely on our experience and expertise and home school with confidence. I • Traditional, rigorous academics in an easy-to-use format • Complete K-8 curriculum; all subjects and supplies J t/om- Old AcU/iedd: included I • Step-by-step lesson manuals ideal for first-time or experienced home schoolers I l/am PUcme-lfyAX /la.: • Time-saving system affords flexibility for your family • Experienced teachers for guidance and support • CD-ROM, video, and audio courses available • Free catalog upon request

Dept. F-128 105 Tuscany Rd Baltimore MD 21210 410-243-6030/fax 410-366-0674 e-mail: [email protected] Visit our interactive Web site: http://www.calvertschool.org

58 FOREIGN SERVICE J O U RN A L! D EC E M B E R 1998 SCHOOLS SUPPLEMENT

Founded in 1793, our coeducational, boarding and day school, near Boston, provides 350 Biologist. students from 17 countries Actress. a traditional, yet innova- Poet. . qh tive college innovative St. Timothy's School. preparatory A leading college curriculum. Seminars, preparatory school small classes, independent for girls, grades 9-12 study options, and and Postgraduate. committed faculty advisors ensure individual attention and personal growth. Students are Stevenson, MD 21153 encouraged Personal 410-486-7400 to assume °growth leadership roles and value individual differences. Our strengths: art offerings, DANA HALL SCHOOL integrated technology, In 1881, Dana Hall's founding was based on a commitment competitive athletics and to educating young women for college and beyond... Winterim, a two week adventure term that . . promotes experientiali * . experien- learning learning. Our facilities include a new Arts Centre, theatre, Sony language lab, ...And The Tradition Continues. and Athletic Complex. Dana Hall School is an independent, boarding and day school for girls in grades 6-12, located 12 miles west of Boston. To receive a catalogue, contact the Admission Office. Lawrence |5| Academy Dana Hall School

Powderhouse Rd., Box 992 Groton, MA 01450 45 Dana Road • Wellesley, MA 02482 Tel: (978) 448-6535 • www.lacademy.edu (781) 235-3010 • Fax: (781) 235-0577

DECEMBER 1998/FOREIGN SERVICE JOURNAL 59 SCHOOLS SUPPLEMENT

XY/esttown School, founded in 1799. fr /.v7/ Quaker co-ed day and boarding school with 600 students from 25 states and 17 countries located in Chester County, Pennsylvania.

vt v*isMn From pre-kindergarten through 12lh grade, we offer healthy, challenging and exciting programs in a safe and structured environment. As a secondary prep and college prep day and boarding school, we give young men and women an edge on the future. Summer sessions are held in 2,4,6 and 10 week periods that combine fun and study. Camping, computers, study skills, sports, equestrian and ESL programs are only some of the activities students enjoy. Tuition Discount for Embassy Families! Please call the Admission Office for information

85% of the faculty reside on the 600-acre campus 800-433-4687- 805-646-1423 which includes a science center, art center, field house and since 1911 24-meter swimming pool. oirviiM Siiiioi, WESTTOWN SCHOOL • WESTTOWN , PA 723 El Paseo Rd„ Ojai, California 93023 610-399-7900 www.ovs.org

WE BELIEVE... Lakefield COLLEGE SCHOOL in young people, in academics, Lakefield. ON KOL 2H0 Canada in leadership, in character, ph: (705) 652-3324 fax: (705) 652-6320 in challenges, in tradition... www.lakefieldcs.on.ca - Boarding program, Gr. 9 - L.C.S. students University entrance are from: - 1 V'z hrs north-east of Bahamas Toronto, Ontario Bermuda Canada - 100% university placement England for graduates Florida - 7 day-a-week residential Georgia program Hong Kong - small residences with a Japan family-like atmosphere Mexico - outstanding music, art, Michigan co-ed • college prep • structure • New York • boarding/day • 100% college acceptance • drama, debating programs Pennsylvania • 11:1 student/teacher ratio • - exciting outdoor experiences Saudi Arabia • faculty supervised study halls • - fully networked classrooms Spain • full athletic program • and residences Switzerland Oak Ridge Military Academy - notebook computers for all Texas Gr. 10 - OAC students Trinidad 1-800-321-7904 Oak Ridge, NC Experience the “Lakefield Difference” KsaWuhrd 1*52 A member o/CAIS, NAIS, CESI, CIS, TABS

60 FOREIGN SERVICE J OU RN ALI DEC EMB ER 1998 SCHOOLS SUPPLEMENT

|Pn|ir ScAooCb-/It- /l-/lt

Cardigan Mountain All 2 '/ 189 90 21 6-9 N Y/Y 2 Y Y Y+ School Boys hrs. All Dana Hall School 382 50 14 6-12# N/A N 14 hr. Y Y N Girls

The Forman School 170 75/25 93 9 9-12 Y Y/Y 1 hr. N N/Y N

All 30 Foxcroft School 157 85 18 9-PG Y N Y Y Y Girls miles All The Gow School 140 100 12 7-PG N Y/Y 14 hr. Y Y N Boys All 45 The Grier School 160 100 40 7-12 Y Y/Y Y N N Girls mins.

Hampshire Country All 2VA 21 100 15 3-12 Y Y/N N N N School Boys hrs. The Hockaday All 30 1009 7 3 PK-12 Y Y/N Y Y Y School Girls mins. Interlochen Arts 4 14 447 39/61 93 15 9-PG N N Y Y N Academy hrs. Lakefield College 1 14 335 51/49 64 15 7-13 Y Y/N Y Y N School hrs.

Lawrence Academy 350 56/44 5- 15 9-12 N N 1 hr. Y Y/N Y

Maxwell 45 200 50/50 60 45 7-12 Y N Y N Y International Baha’i mins. 3 Mercersburg 1 /4 423 65/35 80 15 9-PG Y N N Y N Academy hrs. All 1 14 Miss Hall’s School 130 70 18 9-12 Y N/A Y N N Girls hrs. New Mexico Military ADHD 983 80/20 100 6 9-PG N 3 hrs. N Y Y Institute only Northfield Mount 1 14 1139 55/45 90 25 9-PG N N Y Y N Hermon hrs.

DECEMBER 1998/FOREIGN SERVICE JOURNAL 61 SCHOOLS SUPPLEMENT

Sc6oo&-s4t-rf-&a*tce 'Decem&en, 1*29% for Gender Special Airport Percent Percent Students for Int’l Common Boarding

Schools Coverage* Distance to Orientation Enrollment Counseling/ Application Distribution Nearest Int’l Programs for Dorms Wired ADD and LD International Email/Phones Holiday Break Levels Offered Accepts/Offers New York Military 5-PG (B) 20 250 88/12 95 17 Y Y/N N N/Y N Academy 7-PG (G) mins. Oak Ridge Military 180 82/18 70 10 7-PG N Y/N 6 miles Y N Y Academy Oakwood Friends 25-30 121 50/50 60 10 9-12 Y Y/Y Y N N School mins. 1 3/4 Ojai Valley School 337 51/49 46 24 3-12 Y Y/N Y N N hrs. The Oxford All 40 100 25 9-PG N Y 1 hr. Y N N Academy Boys Perkiomen School 250 58/42 60 20 5-PG Y Y 1 hr. Y Y N All 30 The Phelps School 133 94 20 7-PG N Y Y N Y Boys mins. Phoenix Special Correspondence Program: For more information go to www.phoenixacademies.org Programs Shattuck-St. Mary’s 45 300 61/39 80 15 6-PG Y N Y Y Y School mins. Shawnigan Lake 380 60/40 91 23 8-12 N N/N 1 hr. Y N/Y Y School St. John’s 90 B-N 250 54/46 36 18 7-PG Y N Y N Preparatory School mins. G-Y St. Michael’s 845 53/47 22 N/A K-12 N N Zi hr. N Y N University School All 25 St. Timothy’s School 120 70 13 9-12 Y N Y N Y Girls mins. TASIS 280 50/50 90 60 7-PG N N 1 hr. Y N N 35 TASIS England 750 50/50 20 35 PK-12 N N Y N N mins. Washington No 745 45/55 0 33 PK-12 N N 5 mins. N N International School Dorm All 1-1 V4 Westover School 190 63 11 9-12 Y N Y Y Y Girls hrs. 40 352 46/54 72 11 9-12 N N Y N N Westtown School mins. The White Mountain 100 N/A 75 10 9-12 Y Y/Y 2 hrs. N N Y School Williston 45 530 50/50 60 12 7-PG# Y Y/N N Y N Northampton School mins. e-stays. + Thanksgiving only # 9-12 boarding 62 FOREIGN SERVICE ] OU RN AL! DEC EMB ER 1998 SCHOOLS SUPPLEMENT

Saint Johns Phtrin fyitial Pmjrm Preparatory School ip!)

Founded in 1857 by the Meeting Unique Educational Needs Since 1969! Benedictine monks of Saint Distance Learning Academic Program John's Abbey, Saint John’s Prep is Internet & Print-Based Courses well known for its challenging college preparatory curriculum in ▼ ▼▼ a quality, structured environment.

4^f Academic Excellence

& Spiritual Growth Perfect for youthful learners: 4^ Honors classes; 8 advanced Home school students placement classes Traveling Scholars Accredited by Accelerated pupils North Central Association * Courses for college credit at Saint John’s University and of Colleges and Schools since 1981 the College of Saint Benedict Contact us online: 4^ Enrolling boarding students www.online.phoenixacademies.org in grades 9-12 [email protected] & Campus is located on 2,400 acres of woods and lakes, Free catalog available just 10 minutes west of St. Cloud, Minnesota. 1-800-426-4952 Continental U.S. Saint John’s Preparatory School PO Box 4000 Phoenix Special Programs & Academies Collegeville, MN 56321 1717 West Northern, Suite 104 (320) 363-3321 Phoenix, AZ 85021-5469 E-Mail: [email protected] • Web Site: http://www.csbsju.edu/sjprep (602) 674-5555

. s c __ _ _ Middlebury, CT Westover is an academically rigorous school dedicated to challenging and encouraging young women in all aspects of academic, community, and athletic life. • Joint Math/Science program with Rensselaer Polytechnic Institute •Joint program with the Manhattan School of Music •Advanced Placement in 17 subjects •Girls’ boarding & The Grier School day, grades 9-12 •Outstanding f) Boarding Behoof for Girls performing & visual arts •Students E-mail: [email protected] For more information contact: representing 15 The Office of Admission countries and 24 URL:http://www.grier.org states Westover School P.O. Box 847 phone: 814 684 3000 Middlebuty, CT 06762 •Competitive teh (203) 758-2423 sports including fax: 814 684 2177 fax: (203) 5/7-4588 dance, an outdoor e-mail: program, and 8 [email protected] varsity sports college-prep academics, athletics, arts, dance, horseback riding

DECEMBER 1998/FOREIGN SERVICE JOURNAL 63 SCHOOLS SUPPLEMENT

EDUCATION

Nestled in the Hudson Valley is a school where your child can receive individual attention from outstanding teachers in a safe campus setting.

Call Cynthia Pope, Director of Admissions (914) 462-4200 • Grades 6-12 • Boarding and Day • 8-to-1 Student/Faculty Ratio Oalcwood • Excellent College Placement Record FRIENDS^SCHOOL . . . for life!

515 South Rd., Poughkeepsie, NY 12601 www.o-f-s.org A bnawmgan education gives students the firm foundation on which to build successful lives.

A FUTURE OF Why Shawnigan? • One of the top boarding schools GREAT POSSIBILITIES in North America • Small classes and excellent teaching • SAT prep courses and testing • Personal attention to students through an advisor system • Advanced Placement courses Personal development through outstanding programmes in academics, sports and fine arts safe, family environment

FOR MORE INFORMATION, PLEASE CALL 214 - 360-6522 For more information, contact: Admissions Office GIRLS: PRK-K - 12TH GRADE • BOARDING: 8TH - 12TH GRADE Shawnigan Lake School, THE 1975 Renfrew Road, Shawnigan Lake, BC, HOCKADAY Canada V0R 2W0 SCHOOL tel (2S0) 743-6207 fax (250) 743-6200 email [email protected] website www.sls.bc.ca 11600 WELCH ROAD, DALLAS, TEXAS 75229 • 214-363-6311 SHAWNIGAN LAKE SCHOOL

64 FOREIGN SERVICE ] O U RN AL! D EC EM B E R 1998 SCHOOLS SUPPLEMENT

A THE PHELPS SCHOOL 53 YEARS OF CARING STRUCTURED ENVIRONMENT Boys boarding / day FRESH Grades 7-12 (Post Graduate) Emphasis on underachiever Significant achievements with low self-esteem START... Success with learning differences (A.D.D.) College preparatory Average class size: 7 Student body from 20 states & 10 countries Safe, 110 acre Philadelphia suburban campus Sports and activities programs Followed Equestrian programs, outdoor & indoor arenas Five week summer school program by a Tuition reduction to State Dept. Employees

great THE PHELPS SCHOOL finish ! P.O. Box 476, Malvern PA 19355 610-644-1754 • Fax 610-644-6679 www.phelpsschool.org

Tomorrow’s leaders will have an international education

WELCOME TO ST. MICHAELS UNIVERSITY SCHOOL, one of Canada’s premier, independent, fully co-educational day and boarding schools. Whether your son or daughter is an academic, artist, musician, or athlete, St. Michaels University School has the outstanding, well-rounded programs to stimulate, enrich, and challenge. • comprehensive Advanced Placement program • recent graduates attend top US, Canadian, and World Universities including Vassar, Yale, Harvard, Toronto, Queens, Oxford, Johns Hopkins, Stanford, and UBC • two Rhodes Scholar graduates in the last ten years • small classes, acclaimed faculty - national award winners, authors, artists, musicians, internationally ranked athletes and coaches • excellent supporting programs in the arts, athletics, and outdoor education • safe, caring home and learning environment • attractive, comfortable and modern boarding facilities in a park-like setting • home to international boarding students from 20 nations St. Michaels University School • located in one of the world’s most beautiful cities • 30 minute flight from Seattle or Vancouver 3400 RICHMOND RD, VICTORIA. BC. CANADA V8P 4P5 Admissions Toll Free: 1-800-661-5199 Phone: (250) 592-2411 • Fax: (250) 592-2812 Visit our web site: http://www.smus.bc.ca e-mail: [email protected]

Outstanding preparation for higher learning and for life

DECEMBER 1998/FOREIGN SERVICE JOURNAL 65 SCHOOLS SUPPLEMENT

What did Albert Einstein, Thomas Edison They all: A. Had a great influence on culture and society B. Were able to think in a different way to find solutions to problems C. Had learning differences D. All of the above.

The correct answer is "D." Of the other three choices, the fact that these men all had a learning difference is probably the least known. What is even less known is that an estimated 15% of the population today have a learning difference. The Forman School recognizes the fact that people who have a learning difference, such as dyslexia, are not inherently any less intelligent than other people, as these men have proven. Forman, a college preparatory school for students who have learning differences, strives to bring out the potential of students who have a dream of going to college (and happen to have a learning difference). Through the use of researched teaching strategies and one-on-one language tutorials, Forman offers these students the skills they need to succeed in college and in life. Now accepting applications for the 1999-2000 academic year. 12 Norfolk Road, Litchfield, Connecticut. For more information call the Admissions Office at (860) 567-8712. Fax: (860) 567-3501. Email:[email protected]

Northfield Mount Hermon School 1879

A coeducational college preparatory school, Northfield Mount Hermon enrolls over 900 boarders and 200 day students in grades 9-12 and postgraduate. With an innovative educational program (called the NMH Plan), incredibly diverse and tal¬ ented people, and world-class resources, the school enables stu¬ dents to learn better and grow more as people. NMH provides focus (take only two major courses per term/six per year), indi¬ vidual attention (Moody system of advising, college counsel¬ ing), opportunity (nearly 400 courses; 65 sports teams, 35+ student groups, six term abroad options), real-world context (laptops used in classes), and values (work program, volun- teerism, religious studies courses). The average class size is 13. 206 Main Street • Northfield, MA 01360 Phone: 413-498-3227 • Fax: 413-498-3152 Boarding tuition: $24,675; Day Tuition: $17,800. Richard E-mail [email protected] Mueller, (College of William and Mary, A.B.) is Head of the Web Site http://www.nmh.northfield.ma.us School. New England Association.

66 FOREIGN SERVICE ] OU RN AL/DEC EM B ER I 998 BOOKS Banning the Bomb in Korea

BY ROBERT M. HATHAWAY

Koreas, in part, on his experiences Oberdorfers well-crafted prose. The Two Koreas: A while posted in Seoul in the 1970s and Oberdorfers book is contemporary Contemporary History, on many trips to North and South histoiy at its best, as demonstrated Don Oberdorfer; Addison-Wesley; Korea since then. He supplements his by his understanding of the key play¬ 1997, $30, hardcover; 472 pages. own observations with more than 450 ers, his non-polemical approach and interviews in eight countries. his shrewd judgments. North Korea and the Bomh: A The Two Koreas, writes Oberdorfer, Oberdorfer approaches his subject Case Study in Nonproliferation, is “a history of the past quarter-centu¬ like the objective journalist he is. Michael J. Mazarr; St. Martin’s, ry of North-South conflict and concil¬ Michael Mazarr, director of the 1995, $17.95, softcovery 290 pages. iation in Korea, with special attention International Security Strategies to die roles of the outside powers.” Project at the Center for Strategic and Disarming Strangers: Nuclear One of Oberdorfers themes is the International Studies, and Leon Sigal, Diplomacy with North Korea, struggle by Seoul and Pyongyang to a consultant for the Social Science Leon V. Sigal; Princeton remain independent of their Great Research Council and a former mem¬ University Press, 1998, $29.95, Power patrons, while at the same time ber of the New York Times editorial hardcover; 321 pages. retaining their protection. Frictions board, are more analytical, even between Washington and Seoul figure didactic. One-fourth of Mazarrs book, heavily in this account, as well as in which relies heavily on already-pub¬ During the first half of 1994 the other two books, as do, to a lesser lished press accounts, is devoted to the United States drifted extent, tensions between Pyongyang laying out his strategy for advancing perilously close to war with and its patrons in Moscow and U.S. non-proliferation objectives North Korea. Detennined to keep Beijing. Sometimes Washington got around the world. In other portions, one of the last staunchly Stalinist its way, as when it succeeded in block¬ he seeks explicit lessons from the countries in the world from acquiring ing South Koreas efforts to develop a Korean experience. Sigals last three nuclear weapons, American policy¬ nuclear weapons arsenal. Frequently, chapters are devoted to asking why makers faced two equally unpalatable however, it did not. As William the United States found it so difficult options: move forward with economic Gleysteen, a former United States to cooperate with North Korea. sanctions no one believed would ambassador to Soudi Korea, ruefully Mazarr s bottom line is that the work, or launch air strikes against observes in the book, the United States United States has unevenly met the North Korean nuclear stockpiles could not use die powerful security challenge posed by North Koreas whose whereabouts were unknown. and economic levers at its disposal for nuclear ambitions. He credits War was averted, thanks in large fear of undermining die stability of a Washington with “moderate and measure to dramatic last-minute country it was trying to shore up. nuanced diplomacy,” but also criti¬ intervention by former President North Korea and the Bomb and cizes American officials for being Jimmy Carter. How the United Disarming Strangers, which deal insensitive to the diplomatic and eco¬ States came to face such a distaste¬ exclusively with North Korea’s nomic motives behind North Koreas ful, dangerous set of alternatives is nuclear weapons program and inter¬ nuclear program and to that country’s the subject of these three books. national, largely American, efforts security concerns. He chides both the Don Oberdorfer, long-time diplo¬ between 1990 and 1994 to thwart it, U.S. and South Korean governments matic correspondent for the are more narrowly focused. In addi¬ for allowing domestic politics to get in Washington Post, bases The Two tion, they are not as easily read as tlie way of promising diplomatic ini-

DECEMBER 1998/FOREIGN SERVICE JOURNAL 67 BOOKS

tiatives in late 1991. He reproaches high-level negotiations. Sigal calls he writes, “seemed more preoccu¬ the U.S. for its narrow, legalistic this a “crime-and-punishment pied with preserving the sanctity of approach in attempting to keep approach,” one that produced diplo¬ its own standard operating proce¬ nuclear weapons out of the hands of matic deadlock and a crisis that dures than with preventing prolifer¬ the North Koreans. At the same time, might have escalated out of control, ation in North Korea.” he concedes that more skillful diplo¬ if former President Jimmy Carter Mazarr s account sometimes gets macy might not have overcome North hadn’t stepped in. bogged down in the daily twists and Korea’s determination to retain a Sigal blames Washington’s reluc¬ turns of diplomacy. In addition, he nuclear option. tance to negotiate with North Korea does not adequately emphasize the Mazarr believes that the 1994 on the Clinton Administration’s fear degree to which North Korean agreement on nuclear weapons — of being labeled soft or naive by actions made U.S. concessions polit¬ the so-called Agreed Framework — Republicans. He also blames the ically difficult. Neither Mazarr nor was the best that the U.S. could American press corps for not report¬ Sigal discusses how Washington have hoped for from Korea. U.S. ing conciliatory North Korean state¬ could have persuaded its South diplomats agreed not to demand an ments and the “American foreign Korean ally to accept the conciliato¬ accounting of how much plutonium policy establishment” for painting ry approach toward the North that North Korea had produced in the Korea as a rogue state. both advocate. past. In return, North Korea agreed Sigal downplays Pyongyang’s fail¬ Sigal’s book is the most sweeping to steps that would prevent it from ure to abide by its pledges and in its criticism of a U.S. policy that producing more plutonium. If the ignores North Korea’s insistence on he sees as resulting from systemic United States had pressed North inducements before complying with flaws, not simply poor leaders. He is Korea on the issue of past produc¬ its commitments. Instead, he argues likely to give readers heartburn with tion of plutonium, it might have that North Korea has refrained from his central contention that the U.S. jeopardized North Korea’s agree¬ producing plutonium since 1991, should have been prepared to offer ment to stop producing the deadly has permitted international inspec¬ inducements so that North Korea material, according to Mazarr. “To tors to monitor its nuclear facilities would abide by its NPT commit¬ insist on immediate inspections and has consistently met U.S. con¬ ments and with his assertion that the aimed at the nuclear program’s past, cessions with concessions of its own. near disaster in 1994 was due to at the expense of an inspection He describes North Korea’s large, Washington’s intransigence. Still, regime to control its future, was to well-equipped army as “largely a fic¬ this is a serious book which merits put the cart before the horse,” he tion,” and ignores how frequently study. writes. Critics of the agreement Washington’s decisions were driven Today the Agreed Framework is contend that more skillful diploma¬ by bellicose North Korean actions under attack in both the United cy, perhaps combined with greater and rhetoric. Challenging the con¬ States and North Korea. These willingness to employ the stick, ventional wisdom that Pyongyang is books provide useful information could have achieved both, but there determined to acquire nuclear about the complexity of the North is no evidence to support this con¬ weapons, Sigal paints North Korea Korea issue. tention. as a country that meets cooperation Government officials and military Leon Sigal agrees with Mazarr with cooperation and responds with commanders might also profit from about the 1994 agreement. He’s threats only when confronted. the words of Gen. Gary Luck, com¬ more critical than Mazarr, however, Both Mazarr and Sigal have harsh mander of U.S. forces in South about the methods the United States judgements about the International Korea in the mid-1990s, whom Sigal employed in achieving it. “For too Atomic Energy Agency, which was quotes: “If you fight, you win. But long U.S. policy toward North Korea intent upon regaining credibility lost you spend a billion dollars, you lose was muscle-bound and brain-dead,” when it was fooled by Iraq about the a million lives, and you bring great he writes. Instead of offering extent of its nuclear weapons pro¬ trauma and hardship,” said Luck. inducements to North Korea for ful¬ gram. The agency often took the “So, I’m not sure winning is a win.” filling its Nuclear Non-Proliferation “toughest and most confrontational Treaty obligations, Washington stances,” writes Mazarr. Robert M. Hathaway is a senior insisted that Pyongyang comply fully Sigal’s judgment is harsher, and staffer on the House International with the NPT as a precondition for perhaps not entirely fair. The IAEA, Relations Committee. ■

68 FOREIGN SERVICE J OU RN Ah! DEC EM B ER 1998 i

IN MEMORY

H. Stuart Blow, 82, a retired masters degrees in public adminis¬ in the U.S. Navy in World War II, he FSO, died of pneumonia July 26 at tration and in economics and gov¬ went to work for the government the Sleepy Hollow Nursing home in ernment. and eventually transferred to the Annandale, Va. Mr. Boochever first joined the U.S. Information Agency. Among his A native of Edenton, N.C., Mr. Department of State in 1945 in the overseas posts were Stuttgart, Blow graduated Phi Beta Kappa Office of Research and Analysis, Surabaya, Tokyo and Nagoya. from the University of N.C. Before USSR Division, later serving as an Survivors include his wife, World War II he was an insurance economist with the Marshall Plan Dorothy; his daughter, Carol; and agent and served in the army in and with the Office of European his son, William, Jr. Europe during the war. Regional Affairs. He entered the In 1946 he joined the Foreign Foreign Service in 1956 and held Service. His overseas posts included overseas posts in Luxembourg, Calcutta and Bangkok. In the 1960s Paris, Belgrade, Rome and Brussels, Arden Edward du Bois, 91, a and 1970s he aided in the negotiations which included duties as deputy retired FSO, died August 17 in with Russia and Japan on fishing and U.S. representative to the European Naples, Fla. whaling treaties. He retired in 1974 Coal and Steel Community; deputy Mr. du Bois was bom in North after an assignment in Washington, to the U.S. representative to die Mankato, Minn. Before his career in D.C. as special assistant to the secre¬ OECD; and charge d’affaires of the the Foreign Sendee, he worked with tary for fisheries and wildlife. American Embassy, Brussels, for the International Health Division of Survivors include two daughters, over a year. Mr. Boochever retired the Rockefeller Foundation in Deborah E. Blow and Lucinda B. in 1974. Brazil, Panama, New York and Brown, both of Springfield, Va.; and In retirement, Mr. Boochever Cuba. two grandchildren. served as chief economist for the He joined the Foreign Sendee in National Restaurant Association until 1940. During his more than 30-year 1979 and remained active in educa¬ career he served in Brazil, tional, civic and athletic pursuits. Honduras, the Dominican Republic, Louis C. Boochever, 78, died of Survivors include his wife of 53 Mexico and Germany. In heart failure at his home in years, Virginia Outwin Boochever of Washington, D.C. he was in charge Bethesda, Md. on October 31. Maplewood, N.J.; four children, of the Translation Branch of the Born in Madison, Ga., Mr. David R., Emily L., Mary V. and Division of Languages until his Boochever grew up in Ithaca, N.Y., John O.; and seven grandchildren. retirement in 1973. where he graduated first in his class Sundvors include his wdfe, Nally from Cornell University. He inter¬ du Bois; his son and daughter-in-law, rupted his graduate studies at the Marc and Pat du Bois; his daughter Harvard University Littauer Center William Dietz, a retired FSO, and son-in-law, Felice and Patrick to serve in the Army Signal Coips died of cardiac arrest at his home in McIntyre; four grandchildren; four and Office of Strategic Services in Fort Myers, Fla. on August 24. great-grandchildren; a sister and Washington during the war years. Mr. Dietz was born in brother-in-law, a nephew and nieces He returned to Harvard to complete Philadelphia in 1917. After serving and cousins.

DECEMBER 1998/FOREIGN SERVICE JOURNAL 69 IN MEMORY

Honora Rankine-Galloway, 51, dering his dedication to and appre¬ the China-Burma-India theater of an FSO, died of cancer at ciation of the U.S. Foreign Service. operations. Georgetown University Hospital on Mr. Schechter’s government After he joined the Foreign July 18. career began at the Office of War Service in 1945, Mr. Steeves spe¬ A native of Albany, N.Y., Ms. Information and he later made the cialized in Asian affairs. He served Rankine-Galloway received her transition to USIA. He served in overseas at the embassy in Tokyo, bachelors degree from the College London, Luxembourg, Berlin, as charge d’affaires in Djakarta, as of New Rochelle, earned a doctorate Munich, Bonn, Rome, La Paz and consul general in both Okinawa in American literature from the Caracas. During his career he and Hong Kong, and as ambas¬ University of Pennsylvania and had founded RIAS (Radio in the sador to Afghanistan from 1962 to been a Fulbright fellow. She taught American Sector) in Berlin. In Bonn 1966. Returning to Washington, at several universities: Aix-en- and Munich he oversaw the de-nazi- he became Director General of the Provence and Caen in France, fication efforts and the return to Foreign Service in 1966 and Rutgers, and the C.W. Post Center civilian control of Germany’s com¬ retired in 1969. of Long Island University. munications infrastructure. After retirement, he was the In 1984 Ms. Rankine-Galloway After his retirement, Mr. chairman at the Center for Strategic joined the Foreign Service as an offi¬ Schechter continued his activities as and International Studies at cer with USIA. Her overseas assign¬ a writer, lecturer and consultant on Georgetown University. He moved ments included Tokyo and international affairs. He was a life¬ to Pennsylvania and in 1970 he orga¬ Copenhagen. She was serving in long Zionist leader and published nized the Carroll Valley, Pa., Washington, D.C. as a country two books — Kamipf Um Zion (Fight Citizen’s Association and was instru¬ affairs officer in the Office of West for Zion) shortly before he emigrat¬ mental in the formation of the European and Canadian Affairs at ed from Austria, and Viennese Borough of Carroll Valley, Pa., the time of her death. Vignettes in 1984, dedicated to the where he served as mayor. Survivors include her husband, Viennese Jewish community prior to He is survived by four grandsons; Gerald Rankine-Galloway, and her World War II. fifteen great-grandchildren; and a son, Adrian, both of Washington, Survivors include his wife, Gerda; sister, Cynthia Homann of St. D.C. his son, Peter; his daughter-in-law, Helena, Calif. Rosa; and his granddaughter, Alia.

Edmund Schechter, 90, a Kenneth P. T. Sullivan, 80, a retired FSO, died September 11 in John Milton Steeves, 93, retired retired FSO, died of cancer Washington, D.C. FSO, died of a coronary thrombosis September 18 in Chambersburg, Pa. A native of Austria, Mr. October 1 at the Renovah Center in Born in Boston in 1918, Mr. Schechter received his doctoral Mechaniesburg, Pa. Sullivan attended the Boston Latin degree from the University of Mr. Steeves was born in 1905 in School and Bowdoin College, Vienna and was fluent in six lan¬ Brinsmade, N.D. and graduated where he earned an A.B. degree in guages. He left Vienna in 1938 a from Walla Walla College in 1927. German. Later he studied at few days after the German occupa¬ He also earned a masters degree in Harvard and American Univer¬ tion. From France he organized education from the University of sities as well as Universitaet Bonn clandestine immigration to Washington in Seattle in 1935 and and the Universite de Marseille a Palestine before he was captured attended the National War College Nice. During World War II, he by the Germans. He escaped from in 1950. He spent 15 years in India served in both Europe and the a POW camp in Brittany and cred¬ as a secondaiy school principal, and Pacific and attained the rank of ited the U.S. consul-general in in the last two years of World War II, major. His last military assignment Casablanca who gave him a U.S. he became the executive officer of was with the U.S. Group Control visa with saving his life and engen¬ the Office of War Information for Council in Berlin, to which he

70 FOREIGN SERVICE J O URN AL/D EC EM B ER 19:98 / TV M E M 0 II Y

returned as a War Department Survivors include a brother, negotiations in 1995. He retired civilian in 1946. Walter Carroll Taylor, Jr. of to Annapolis, Md., in 1995. In 1947 Mr. Sullivan joined the Martinsville, Ind.; two nephews, Survivors include his wife of 41 Foreign Service and was assigned to Walter Carroll Taylor III of Illinois years, Lourana Swift Thomas of USPOLAD in Berlin in what was to and Christopher Earle Taylor of Annapolis; three sons, John Charles be the first of several assignments as Charlotte; a niece, Susan Alice Thomas of New York, Stuart a Central European specialist. Later Taylor of Illinois; and many cousins Granville Thomas of West Palm tours abroad were in Tuebingen (in in the Greer/Greenville, S.C., area. Beach, Fla., and Andrew Lowry the then state of Wuerttemberg- Thomas of McHenry, Md.; a daugh¬ HohenzoUern), Bonn, Duesseldorf, ter, Jennifer Thomas McGrath of Belgrade, Khartoum, Vienna and Pittsburgh; his mother, Helen finally in Bremen as consul general. Charles H. Thomas, 64, a Cogswell of Pittsburgh; a brother; He retired in 1976 after a tour in the retired FSO, died of leukemia Sept. and six grandchildren. State Department as a Foreign 13 in New York. Sendee inspector. Mr. Thomas was horn in Buffalo Survivors include two daughters, and graduated from Harvard Dale A. and Karen Lee; a son, Kirk University. From 1956 to 1959 he Mary Vance Trent, a retired Bruce; and four grandchildren, all of was a Navy helicopter pilot and he FSO, died of cardiac arrest October Germany. In the U.S. he is survived continued to serve in the Navy 13 in Alexandria, Va. by three nephews and four nieces. Reserve until retiring in 1972 with Bom in Indianapolis, Ms. Trent the rank of lieutenant commander. graduated from Butler University. After joining the Foreign Before joining the Foreign Service, Service in 1959, Mr. Thomas she worked on the implementation Sarah A. Taylor, 83, a retired served in Ciudad Juarez and La of the United Nations Treaty in Foreign Sendee employee, died of Paz. He received the Department London. heart failure Sept. 2 at her summer of State Award for Heroism in In 1946 she became a Foreign home in North Carolina. 1965 for his role in the release of Service officer and was sent to Born in Westminster, S.C., in four Americans taken hostage in Paris where she continued to work 1915, Ms. Taylor attended Winthrop Bolivia. After a tour in on U.N. issues. Her other foreign College and graduated cum laude Washington, first at the Foreign posts included Norway, Czecho¬ from the University of South Service Institute and then as slovakia, Indonesia (twice), and Carolina with a degree in foreign director of the Operations New Zealand. In her last posting, languages, and later earned a mas¬ Center, he was posted to Lisbon she lived in Samoa, where she ter’s degree there. She taught school as political counselor. He also served as political adviser to the until she joined the WACs during served as Peace Corps director in Interior Department on the status World War II. After the war she Uruguay and Honduras and of the Trust Territories in the South worked in a Charleston, S.C. law deputy chief of mission in Pacific. One of her assignments in firm. Brussels before returning to the State Department involved In 1950 she joined the Foreign Washington as principal deputy establishing an in-depth orienta¬ Service; her foreign assignments assistant secretary for European tion program for wives of Foreign included Frankfurt, Karachi, Paris, and Canadian affairs. Mr. Thomas Service officers in preparation for San Salvador, Rabat, Quebec, and served as ambassador to Hungary serving abroad. Izmir. She retired in 1975 from from 1990 to 1994 during that After retirement, Ms. Trent con¬ Malta. country’s transition to democracy. tinued to travel and seived as the She continued her world travels Tapped to be special U.S. envoy international president of the in retirement. She was a member of to the former Yugoslavia, Mr. Society of Woman Geographers the Audubon Society and many of Thomas was part of the team from 1984 to 1987. her trips were to identify birds. working on the Bosnia peace Ms. Trent had no surviving family. ■

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DECEMBER 1998/FOREIGN S E RVIC E JOURNAL 75 POSTCARD FROM ABROAD Trans-Siberian Lunch

BY JAMES F. PROSSER

The photograph in the tourist in neat, clean “soft class” (first class) brochure promised an ele¬ sleeping cars, with permanently gant dining experience: 12 It had taken me locked windows, but surprisingly tables for four covered with white decent air conditioning, I watched tablecloths and vases filled with more than 50 from a train window as we passed flowers sitting on each. The real Zagorsk’s ancient, onion-domed restaurant on board the Trans- years to finally cathedral, traversed the Ural moun¬ Siberian Express didn’t live up to the take a ride on the tains to Yekaterinburg, where Czar propaganda, however. Nicholas II and his family were exe¬ There were only six tables avail¬ 9,2 71-kilometer- cuted, crossed the Volga River and able for customers. Cardboard boxes headed into summertime Siberia, covered with tarpaulins were stacked which reminded me of farms and loimO Trans-Siberian on and under the others, making the forests I had viewed as a boy on the dining room look like a freight ware¬ railroad. train from Green Bay, Wise., to house. Nevertheless, our group of six Duluth, Minn. Americans, joined by two Finns, laid At regular station stops, which claim to the car for eating, drinking seemed to come at two hour inter¬ and socializing while chugging from vals, we purchased food from vendors Moscow to Irkutsk, four days away. in kiosks along the platform. In Since most Russians carried enough whether it was on the menu or not, Irkutsk, we left die train to explore food to last the entire trip, we were was the only option. Still, we were Lake Baikal. When we re-boarded a alone in the diner. never disappointed with these tasty different train four days later, our Valentina, the sole waitress, meals, which cost from three to five accommodations were identical to informed us that the car was open dollars and included, at times, excel¬ those we had left. Heading for die from 0900 to 2100 Moscow time lent borscht and delicious sauteed dining car, we noticed diat even more each day. Since the train crosses beef. space was occupied by die mystery seven time zones traveling eastward It had taken me more than 50 boxes. Soon, we found out why. At across Russia, I knew just scheduling years to finally take a ride on the each stop in the 2,240 kilometers breakfast would be a problem. Like 9,271-kilometer-long Trans-Siberian between the cities of Chita and the dining car pictures, the menu railroad. As a boy, a history of the Birobidzhan, just north of the also promised more than it deliv¬ worlds railroads in my grandparents’ Chinese border where there aren’t ered. Printed in Russian, German library first piqued my curiosity any roads, we watched our waitress, and English, it listed succulent, var¬ about the train. When I was an FSO Svetlana, and cook, Vladimir, sell ied items. We quickly discovered posted to Moscow from 1972 to vodka to waiting customers during that ordering whatever the cook had 1974,1 twice asked — and was twice five-minute station stops. They decided to prepare for the day, refused — permission to ride it from explained to us that the boxes of Moscow, in the heartland, to vodka help die dining car employees, Vladivostok, on the Pacific Ocean. who work for a concessionaire and James Prosser, a retired FSO, served So, in 1996, after the Soviet not the railroad, make extra money. in Rome, Nairobi, Brussels, Geneva, Union disintegrated, and again in By the time we reached the Moscow, Leopoldville, Munich, this year, I jumped at the opportunity Pacific and the end of the line, all Phnom Penh, and Saigon. to fulfill a rail fan’s dream. Traveling the boxes were gone. ■

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